EVALUATION REPORT

SOMALIA INDEPENDENT COUNTRY PROGRAMME EVALUATION 2011-2015

This report was prepared by Vision Quest Consultants.

Disclaimer: This evaluation report was prepared for United Nations Population Fund Somalia Country Office by Vision Quest Consultants. The analysis and recommendations of this report do not necessarily reflect the views of UNFPA, its Executive Board or the United Nations Member States. ACKNOWLEDGEMENTS Vision Quest Consultants (VQC) extends its sincere field teams, led by Heads of Sub-Offices for gratitude to the UNFPA Somalia country office for Somaliland, Puntland and Mogadishu for their the opportunity to undertake this evaluation valuable support and guidance during planning and exercise. VQC is grateful for the support that the execution of the evaluation. We also extend special country office staff gave to the evaluation team at thanks to Simon-Pierre Tegang the Regional M&E every stage of the process. In particular, we Adviser- Arab States Regional Office and Yukari appreciate the support of Grace Kyeyune, the Horii, Programme Analyst (Monitoring and Deputy Representative, the entire management Evaluation) for the UNFPA Arab States Region, for team, and Ezekiel Kutto, the M&E Analyst for the their professional guidance during the Country country office for his technical support and Programme Evaluation (CPE) design and for their guidance during the evaluation period. We also valuable comments on the evaluation findings. recognise the efforts of Stella Kimani, UNFPA’s M&E intern who helped coordinate all the logistics during We are thankful to all key informants from UNFPA the evaluation. and its implementing partners for their dedication, for making themselves available for interviews, We would also like to extend our gratitude to Achu providing information, organising meetings with Lordfred, Reproductive Health and Rights (RHR) beneficiaries and working outside office hours to Technical Specialist; Samia Hassan, Programme ensure that we got all the information needed for Manager for the Humanitarian Response; Isatu the evaluation. We also extend our appreciation to Sesay-Bayoh Gender Advisor and Gender Based the beneficiaries and focus group discussions Violence (GBV) Technical Specialist; Eri Taniguchi, participants who contributed to our efforts to GBV Specialist; Mariam Alwi, Population and meaningfully understand the impact of UNFPA’s Development Programme Manager; and the UNFPA work in Somalia.

i TABLE OF CONTENTS

ACKNOWLEDGEMENTS ...... i ABBREVIATIONS AND ACRONYMS ...... iv MAP OF SOMALIA ...... vi SOMALIA KEY FACTS ...... vii EXECUTIVE SUMMARY ...... viii

1.0 INTRODUCTION ...... 1 1.1 The Purpose and Objectives of the Country Programme Evaluation ...... 1 1.2 Scope of the Evaluation ...... 1 1.3 Evaluation Criteria and Questions ...... 2 1.4 Process and Methodology ...... 4

2.0 COUNTRY CONTEXT ...... 20 2.1 Development Challenges and National Strategies ...... 20 2.2 Role of External Assistance ...... 23

3.0 UN/UNFPA RESPONSE AND PROGRAMME STRATEGIES ...... 23 3.1 UN and UNFPA Response ...... 23 3.2 UNFPA Response through the Programme ...... 23

4.0 EVALUATION FINDINGS ...... 35 4.1 Introduction ...... 35 4.2 Reproductive Health & Rights Component ...... 35 4.2.1 Relevance ...... 35 4.2.2 Effectiveness ...... 40 4.2.3 Efficiency ...... 50 4.2.4 Sustainability ...... 51 4.3 Population and Development ...... 54 4.3.1 Relevance ...... 54

ii 4.3.2 Effectiveness ...... 56 4.3.3 Efficiency ...... 59 4.3.4 Sustainability ...... 61 4.4 Gender Component ...... 63 4.4.1 Relevance ...... 63 4.4.2 Effectiveness ...... 64 4.4.3 Efficiency ...... 71 4.4.4 Sustainability ...... 72 4.5 Management and Coordination ...... 75 4.6 Added Value ...... 79 4.7 Monitoring and Evaluation ...... 82

5.0 CONCLUSIONS ...... 86 5.1 Strategic Level ...... 86 5.2 Programmatic Level ...... 89

6.0 RECOMMENDATIONS ...... 93 6.1 Strategic Recommendations ...... 93 6.2 Programme Level ...... 94

ANNEXES ...... I Annex 1: Terms of Reference ...... I Annex 2: Summary of Findings of UNFPA Somalia 2nd CP Implementation Results (2011-2015) ...... XV Annex 3: CP Evaluation Matrix ...... XX Annex 4: List of Persons Interviewed ...... XXXVIII Annex 5: Evaluation Data Collection Tools ...... XLIII

iii ABBREVIATIONS AND ACRONYMS

AIDS Acquired Immune Deficiency Syndrome ASRH Adolescent Sexual Reproductive Health AWPs Annual Work Plans CARMMA Campaign on Accelerated Reduction of Maternal Mortality in Africa CID Criminal Investigation Department CO Country Office COARs Country Office Annual Reports CPAP Country Programme Action Plan CPD Country Programme Document CPE Country Programme Evaluation EQ Evaluation Question FGD Focus Group Discussion FGM/C Female Genital Mutilation/ Cutting FP Family Planning GBV Gender-Based Violence GBV WG Gender Based Violence Working Group GDP Gross Domestic Product HIV Human Immuno-Deficiency Virus HMIS Health Management Information System HSSP Health Sector Strategic Plan ICPD International Conference on Population and Development IPs Implementing Partners IRF Integrated Results Framework ISF Integrated Strategic Framework KII Key Informant Interview MCH Maternal Child Health MDSR Maternal Death Surveillance and Response MICS Multiple Indicator Cluster Survey MISP Minimum Initial Service Package MoLSA Ministry of Labour and Social Affairs – Somaliland MOLYS Ministry of Labour Youth and Sports MoPIC Ministry of Planning and International Cooperation MoWDAFA Ministry of Women Development and Family Affairs MSF Médecins sans Frontières MW&HR Ministry of Women and Human Rights OSPAD Organisation for Somali Protection and Development P&D Population and Development PESS Population Estimation Survey for Somalia PC Protection Cluster PL Puntland QA Quality Assurance RH Reproductive Health RHCS Reproductive Health Commodity Security RHR Reproductive Health and Rights

iv SAMA Salama Medical Agency SCZ South and Central Zone of Somalia SIS Strategic Information System SL Somaliland SRH Sexual Reproductive Health SSW&C Save Somali Women and Children UN Women United Nations Entity for Gender Equality and the Empowerment of Women UNCT United Nations Country Team UNDP United Nations Development Programme UNHCR United Nations High Commissioner for Refugees UNICEF United Nation Children Fund UNMPTF United Nations Multi-Partner Trust Fund UNSAS United Nations Somalia Assistance Strategy WARDI WARDI Relief Development Initiative WHO World Health Organisation

v MAP OF SOMALIA

vi SOMALIA KEY FACTS

Indicator Data Value1234 Year of Estimate Population 12,316,895 2014 Sex Ratio 1.01 (Males/Female) 2014 Population Growth rate 1.75 2014 Birth Rate 40.87 (births/1,000 population) 2014 Death rate 13.91 (deaths/1000 population) 2014

Socio-economic Indicators Human Development Index 0.285 (165/170 countries) 2012 Human Development Index rank by gender 0.773 2012 Poverty rate 73percent 2012 Life Expectancy at birth 51.58 (years) 2014 Infant Mortality Rate 89 (per 1000 live-births) 2013 Maternal Mortality Rate 732 (per 100,000 live-births) 2015 Proportion of births attended by skilled health 33.1 2013 personnel Under-five morality rate 145.6 (deaths of children per 1,000 births) 2013 Total Fertility Rate 6.08 (children born per woman) 2014 Contraceptive Prevalence Rate 24 (percentage of women aged 15- 49, using any method 20155 contraception) Contraceptive Prevalence Rate 6 (percentage of women using Modern methods of Family 2015 planning Unmet Need for Family Planning 24.5 (percentage of women aged 15- 49, with unmet need for 2013 family planning) HIV Prevalence Rate (among the general 0.5percent 2012 population)

1 http://en.worldstat.info/Africa/Somalia/Vital_statistics accessed on 01/10/2015 2 accessed on 01/10/2015 3 Somalia 2012 Human Development Report 4 Population Estimation Survey of Somalia (2014) 5 http://www.unfpa.org/world-population-dashboard

vii EXECUTIVE SUMMARY

This report presents the results of the final 2) Review the overall coordination and evaluation of the UNFPA Somalia 2nd Country partnership approach adopted during Programme for 2011-2015. programme implementation; 3) Identify innovative approaches The Somalia programme had a total budget of towards programme implementation 74.87 million USD, with funds mobilised from and lessons learnt or best practices both regular (21.42 million USD and other identified including the extent to which (53.45 million USD) sources to finance UNFPA programmes integrated gender programme activities. The programme covered and rights-based approaches; the three programme components namely 4) Identify any challenges and reproductive health and rights (a total impending threats the programme is expenditure of 35.37 million USD); population facing, as well as opportunities; and and development (expenditure of 10.11 million 5) Draw key lessons from past and USD) and gender equality (expenditure of 10.05 current implementation arrangements million USD). The 2nd Country Programme to provide a set of clear and forward sought to improve the overall quality of life of looking options leading to strategic and the Somali people and was developed to actionable recommendations for the contribute to the outcomes of the United next country programme cycle. Nations Somalia Assistance Strategy (UNSAS). The CP evaluation covered the period from 1st Purpose and Objectives of the Country January, 2011 to 30th September, 2015 and was Programme Evaluation conducted to cover all the three zones in (SCZ, The purpose of this evaluation was to Puntland, and Somaliland) where UNFPA demonstrate accountability to stakeholders on interventions are implemented. The evaluation performance in achieving results at country also looked at the three technical areas of the level. It was also to ensure accountability of UNFPA programme (Population and invested resources, support evidence-based Development, Gender, Sexual Reproductive decision making, and contribute important Health, Adolescents Youth plus HIV and AIDS), lessons learned to the existing knowledge-base in addition to cross cutting aspects such as on how to accelerate implementation and gender mainstreaming, coordination and better design the next cycle of the country partnerships for each thematic area. programme for Somalia. Methodology The specific objectives of the CPE are to: The design of the evaluation was guided by the 1) Provide an independent assessment objectives and criteria of relevance, of the progress achieved towards the effectiveness, efficiency, sustainability, added expected outputs and outcomes in the value and coordination. These criteria were results framework of the 2nd country used to assess the various programme programme, and the contribution components. Data and information for the towards the realisation of the national evaluation were gathered from both primary outcomes with special focus on and secondary sources. Sampling of relevance, effectiveness, efficiency respondents was purposive and comprised of sustainability, added value and the UNFPA’s implementing partners, staff of UN coordination; agencies, beneficiaries and other development

viii partners. Methods of data collection included In the area of population and development, review of documents, key informant interviews UNFPA has contributed to availability of (KIIs), in-depth interviews (IDIs), focus group population-based data through discussions (FGDs) and observations. The implementation of PESS, and built the capacity consultants routinely validated data at the end of the government including revival and of each data collection day through debriefing strengthening of statistical units both at sessions with the evaluation team. Data analysis national and sub-national levels to enhance the took the form of content analysis and use and dissemination of data. secondary data obtained through document reviews complemented primary data, obtained In the area of gender equality, UNFPA through interviews and focus groups. Data contributed to the promotion of gender collected from multiple sources were equality and women’s dignity through its triangulated to support and validate the leading coordination role and technical and evaluation findings. Additionally, the evaluation financial support to GBV actors and national team sought to validate the data through machineries in areas such as gender based regular exchanges with the CO programme violence prevention and promotion of women’s managers, technical officers at national and human rights treaties/legal frameworks. UNFPA field levels and the evaluation manager. provided lead support, in collaboration with UNDP and the GBV sub cluster, on the ongoing Main Findings legislative process of sexual offences and zero The country programme design and tolerance FGM bills. Together with UNICEF, implementation was well adapted to the needs FGM/C policies across the country are being of the Somalis, and was based on assessments, drafted and implemented (in Puntland). The consultations and country strategic plans. It was Convention on the Status of Women (CEDAW) is also responsive to the emerging needs during at advanced stages of ratification, with over 20 the period of coverage. government directors and parliamentarians trained to understand the convention. The In the area of reproductive health and rights, component led the government and GBV sub UNFPA supported interventions have cluster to strengthen GBV response/service contributed to improved access and utilisation provision to survivors, which saw through the of maternal health, including the Somali IDPs. establishment of 12 GBV one stop centres, 2 The programme has contributed to improved protection shelters (safe homes) and three access to reproductive health services through family centres, providing comprehensive clinical supporting enhanced reproductive health-care management of rape, legal aid, psychosocial service delivery processes, including midwifery support, livelihood and referrals for other training and establishing midwifery training services. Technical trainings and coaching were institutions, supporting increased family conducted for over 45 GBV coordinators with planning service uptake and increasing RH leading coordination functions in the field. In as commodity security, obstetric fistula prevention much as GBV prevention was weak within the and management, strengthened capacities of Protection Cluster (PC) response agenda, zonal authorities, community-based and non- UNFPA made gains in engaging the government governmental organisations, and the most-at- and NGOs to intensify communication risk youth. However, service delivery and engagement that has enhanced community awareness raising in the rural areas are still response in declarations to end FGM and also inadequate. Cultural challenges have also mobilising GBV survivors to utilise services. The affected access to family planning services and component interventions were challenged by RH services by the youth. the strong social-cultural, including strong religious perceptions, which the programme has

IX managed to deal by developing a GBV working Main Conclusions group strategy that was endorsed by both the The country programme is adapted to the humanitarian and United Nations country population needs in the areas of reproductive teams. This gave an opportunity to engage local health, gender equality, particularly in the areas authorities and policy makers systematically to of GBV and promoting the dignity of women address religious and socio-cultural issues that and girls plus population and development and are critical to promoting the dignity and rights continues to be relevant both at the national of women and girls. and international levels. UNFPA focuses on both development and humanitarian priority areas. UNFPA programme efficiency in service delivery had mixed results. UNFPA had The level of efficiency in service delivery was qualified technical staff, who managed and mixed, often due to factors that were not in coordinated the activities with the the control of the programme. UNFPA had stakeholders, providing effective guidance for qualified technical staff who managed and quality service delivery. Coordination and the coordinated the activities with the joint approach to implementation of activities, stakeholders, providing effective guidance for including M&E, was cost-effective in delivering quality service delivery. Coordination and the services. Operational costs were hampered by joint approach to implementation of activities, insecurity. The programme M&E was largely including M&E, was cost-effective in delivering functional where key actions and strategies services. were adopted during the period. Insecurity, emergency nature of the implementation The design of the programme took into context and inadequate staff capacity however consideration sustainability of interventions limited monitoring activities by technical staff through capacity strengthening and to all the project sites. development of protocols, guidelines and manuals for utilisation in standardising On sustainability, the contributions of UNFPA operations and improving quality of service to policies and strategies, development of delivery. However, there is high level of guidelines, manuals, protocols and capacity dependency on the programme’s operations by strengthening are likely to contribute to the government due to its inability to raise sustenance in standardising operations and funds via tax revenues, and further due to improving quality of service delivery. The limited capacity. The context of humanitarian programme promoted community ownership in intervention also hinders achievement of its processes and this made it easy for the sustainability as the causes of the humanitarian activities to be accepted and supported by the crisis still exist and therefore require sustained community. However, there is high level of response from the humanitarian actors. dependency on the programme’s operations by the government due to its inability to mobilise The UNFPA Somalia programme made use of its own resources and limited capacity. Unstable comparative advantage across the three context also hinders sustainability. components; SRH, P&D and Gender Equality. It was also resourceful with human and financial UNFPA had technical and comparative capitals in expertise and funding. Its advantage in all its programme components contribution within the UN system is highly that it supported or coordinated. It also valuable and played a central role in achieving contributed to the functional coordination the targeted UN inter-agency results. within the UN system in Somalia through its participation in and leading some, several UNFPA facilitated and participated in thematic and working groups. coordination mechanisms within the UNCT and

X was effective in providing technical support country. The programme provided essential and guidance in joint programmes with the UN added value to the area of GBV response in partners; enhancing synergy among Somalia through the development of bills to stakeholders in service provision and building improve legal framework, training, awareness the capacity of implementing partners. raising and supporting coordination activities on GBV in the country. Strong socio-cultural The UNFPA’s RHR component was effectively factors, traditional justice system and religious implemented, achieving most of the intended perceptions influence achievement of gender results within the life of the programme cycle. equality and limited the utilisation of the Access to skilled birth attendance improved with staff and health facility capacity available services by the programme strengthened to provide better and quality RH component. services. Development of manuals and service delivery protocols effectively guided quality and Recommendations standardisation of delivery of RH services. 1. UNFPA should continue the practice of Integrating youth activities with the RHR focusing its programme interventions and increased awareness among the youth on support on results of studies, needs reproductive health, including access to assessments, strategic plans, stakeholder services. consultations and feedback, and implementing partner plans and being However, the youth faced some stigma responsive to arising needs for effective accessing RHR services at the youth-friendly service provision and coverage. service centres. Discussing sex issues openly in 2. To enhance sustainability, UNFPA needs to Somalia is not acceptable especially among support capacity strengthening initiatives of youth and adolescents, and this affects delivery of ASRH among the target groups. the government institutions and civil societies, including strengthening their UNFPA’s humanitarian interventions capacities on resource mobilisation; and effectively responded to the needs and embed in its design measures to integrate provided timely services to the vulnerable IDPs sustainability strategies, including focus on and refugees. The unit was responsive and mitigating the possible threats to addressed real needs, including prepositioning sustainability in the partnership commodities for emergency cases arising during the period, which was in compliance with the 3. In the next programme cycle, the minimum initial service package. The maternity programme needs to prioritise rural areas waiting homes played a significant role in with integrated RH services after improving access to maternal health services by conducting assessments, including those in displacement, including referral establishing contextual applicable services. strategies; UNFPA contributed significantly to the 4. UNFPA should make provisions for timely provision of data to guide policy formulation disbursement of funds, annual planning and planning through financing and technical should be done earlier and once the annual guidance in the implementation of the work plans are signed, they should be Population Estimation Survey of Somalia (PESS). implemented as such;

Partnerships between UNFPA, government and 5. UNFPA should strengthen its M&E staff NGOs facilitated GBV response across the capacity and those of the IPs and ensure

XI that there is clear linkage between results funds for innovative methods of prevention and indicators in the programme design; like prevention-with-positives (PwP); and use its technical expertise to support 8. UNFPA need to support capacity the CO in guiding operation research so that strengthening of government institution even the M&E processes can be enhanced; including expanding into supporting analysis 6. UNFPA should continue supporting of population dynamics data and its production of qualified midwives, as there utilisation for policy development, is still a huge gap for midwifery within the programming and impact assessment country to cover the needs of the existing 9. UNFPA should continue to support the legal population, through training, supporting framework and law enforcement efforts to infrastructure and regulation of the reduce incidences of GBV and promoting profession, as well as advocating to the gender equity and intensify engagement government to ensure that the trained and involvement of religious leaders in midwives go back to their communities and advocacy and raising awareness on FGM; their work well supervised and supported with home delivery kits to perform their 10. There is need to support coordination and work; capacity strengthening of local level structures, including religious leadership, 7. UNFPA needs to increase engagement of and community-based organisations, the MoH and other stakeholders to provide traditional and community leaders to form routine obstetric fistula repair services to sustainable local movements to end GBV maximise on the demand that is created through public education and locally based through mobilisation; and allocate more support services for survivors.

XII § Examining programme 1.0 INTRODUCTION implementation efficiency in achieving expected results The UNFPA Somalia country office commissioned § Assessing the relevance and nd this evaluation of its 2 Cycle Country Programme sustainability of the 2nd Cycle CP (2011 – 2015). The purpose and objectives of this b. Review the overall co-ordination and Country Programme Evaluation (CPE) are defined in partnership approach adopted during 6 the Terms of Reference (ToR). The scope and the programme implementation main evaluation questions were developed along c. Identify innovative approaches towards the criteria of relevance, effectiveness, efficiency, programme implementation and lessons sustainability and added value of the programme. learnt or best practices identified including This section details the evaluation process, the extent to which UNFPA programmes methodology and questions, describes a valid integrated gender and rights-based sampling technique and limitations encountered. approaches d. Identify any challenges and impending 1.1 The Purpose and Objectives of the threats the programme is facing and Country Programme Evaluation opportunities

e. Draw key lessons from past and current The purpose of this evaluation is to demonstrate implementation arrangements to provide a accountability to stakeholders on performance in set of clear and forward looking options achieving results at country level. It is also to ensure leading to strategic and actionable accountability of invested resources, support recommendations for the next country evidence-based decision making, and contribute programme cycle. important lessons learned to the existing knowledge-base on how to accelerate 1.2 Scope of the Evaluation implementation and better design the next cycle of the country programme for Somalia. The specific The CP evaluation covered the period from 1st objectives of the CPE are: January, 2011 to 30th September, 2015 and includes a. Provide an independent assessment of the all three Somalia Zones (SCZ, Puntland, and progress achieved towards the expected Somaliland) where UNFPA interventions are outputs and outcomes set forth in the implemented. The evaluation also looked at the results framework of the 2nd country three technical areas of the UNFPA programme programme, and the contribution towards (Population and Development, Gender, Sexual the realisation of the national outcomes, Reproductive Health and Adolescents Youth, with special focus on: HIV/AIDS). Additionally, the evaluation covers cross- § Determining whether planned cutting aspects such as gender mainstreaming, activities were carried out as coordination and partnerships for each thematic planned (effectiveness) and assess area. program performance (extent to which targets were achieved or not)

6 See Somalia Country Programme Evaluation Terms of Reference.

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1.3 Evaluation Criteria and Questions

The evaluation design was informed by the UNFPA Evaluation Handbook on how to design and conduct a CPE and follows four OECD-DAC criteria of Relevance, Effectiveness, Efficiency and Sustainability as well as those on strategic positioning of UNFPA within the UNCT of Coordination and Added Value.

The main questions answered by the evaluation were suggested in the Terms of Reference as shown in the table on the following page.

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EVALUATION CPE QUESTION AS PER THE TOR CRITERIA RELEVANCE Q1: To what extent were the programme interventions consistent with the needs of the beneficiary populations and to what extent was it aligned with government priorities as well as with policies and strategies of UNFPA?

Q2: How well was the CPAP aligned with the ICPD actions and MDGs as well as with the UNFPA Strategic Plans? EFFECTIVENESS Q3: To what extent did the interventions supported by UNFPA in the field of reproductive health and rights contribute to (i) Improved access and utilisation of high quality maternal health and family planning services, including populations affected by humanitarian crisis (ii) Increased national and sub-national capacity to deliver integrated sexual and reproductive health services (iii) Increased priority on adolescents, especially on very young adolescent girls, in national development policies and programmes?

Q4: To what extent have the interventions supported by UNFPA in the field of population and development contributed to (i) increased availability and use of data on emerging population issues at national and sub-national levels (ii) Strengthened national and sub-national capacity for production and dissemination of quality disaggregated data on population and development issues. Q5 To what extent have the interventions supported by UNFPA in the field of gender contributed to: (i) Strengthened national and sub-national protection systems for advancing reproductive rights, promoting gender equality and non-discrimination and addressing gender-based violence; (ii) Increased capacity to prevent gender-based violence and harmful practices and enable the delivery of multisectoral services, including in humanitarian settings?

Q6: To what extent was the programme coverage (geographic; beneficiaries) reached as planned?

EFFICIENCY Q7: Was the programme implementation approach (funds, expertise, time, administrative costs.) the most efficient way of achieving results? SUSTAINABILITY Q8: To what extent are the development gains made under the UNFPA supported interventions in Somalia sustainable in terms of continuity in service provisions and partnerships integration of CP activities into the regular country and counterparts’ programming? ADDED VALUE Q9: What has been the comparative strength of the UNFPA CO response to the Somalia context of protracted crisis and particularly in the areas of reproductive health, gender-based violence and population and development?

COORDINATION Q10: To what extent has the UNFPA CO contributed to good coordination among UN agencies in the country, particularly in view of avoiding potential overlaps?

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Each of the evaluation questions has been and identification of the contacts for translated into information needs, displayed in the selected partners and field staff. the Evaluation Matrix (Annex 3), which linked There were follow-up interviews to the evaluation questions with corresponding actual programme managers, repeat assumptions that were tested, sources of appointments, and review documents information and methods and tools for the data conducted. collection. IV. The Reporting Phase entailed further 1.4 Process and Methodology analysis and drafting of the evaluation 1.4.1 The Evaluation Process report, including review and feedback The evaluation process had five phases: by UNFPA.

I. The Preparatory Phase involved V. The Dissemination Phase will be at the drafting of the terms of reference by point where the main Somalia CO, followed by selection of recommendations of the final the evaluation team. evaluation report will be circulated to the relevant units who will in turn be II. The Design Phase entailed structuring invited to submit a response. the evaluation, including briefing the evaluation team and preparation of the 1.4.2 Methods for Data Collection and Analysis design report by the evaluation team in The CP evaluation made use of mixed methods consultation with the evaluation to collect primary and secondary data, and to manager and other stakeholders. analyse the data by evaluation question as relevant from each source. Secondary data III. The Field Phase consisted of field trips sources consisted primarily of programme to programme sites in Somaliland documents and other relevant reports, whereas (Hargeisa), Puntland (Garowe) and primary data were collected during the field South Central (Mogadishu). Due to phase from program stakeholders through unavailability of staff from ministries of semi-structured interviews, focus group planning across the country, the team discussions and site visits/observations. had to travel to meet them in Entebbe where they were holding a training Data collection Processes meeting on further analysis and PESS • A comprehensive desk literature review report writing. Respondents who were and content analysis were carried out to not based in the visited areas were allow for an in-depth understanding of the contacted virtually. The evaluation CP design, implementation and team also met the UNFPA CO based in management processes, including structural Nairobi among other selected partners. issues of the programme. Some of the Selected CO staff were initially documents include UNFPA and Somali interviewed before field phase to elicit government policy and strategy documents, an understanding of the programme Country Programme documents, CP progress reports and implementation plans

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(CPAPs; AWPs), monitoring and assessment visits helped observe and assess utilisation reports and relevant secondary data. Other of the assistance. A checklist was developed sources such as thematic evaluation reports to structure observations and key aspects and findings of assessments conducted by to look at during the visits. Informal other donors and international interviews were also conducted with both organisations were reviewed. users and in-charges.

• Semi-structured Interviews (SSI) were 1.4.3 Selection of the Sample of Stakeholders conducted for sampled key informants. A complete sampling frame including all the CP These included CP Implementing Partners, stakeholders at different levels was constituted. relevant government ministry staff Considering the large number of stakeholders, (sampled from all the three administrative the selection of the sample was based on a set zones), relevant UN agencies, NGOs and of criteria, including but not limited to the UNFPA staff, (refer to the Annex 4 for programme components which they complete list of respondents). The interview implement; the level of programme investment guides were developed along the UNFPA (and interventions) by UNFPA, based on the thematic areas of SRH, P and D, and Gender AWPs and length of engagement with UNFPA as and rights; and the questions were aligned an IP to be able to provide an opinion on the to answer the evaluation questions as per performance of the programme. Considering the evaluation criteria. the sensitivities in Somalia, geographic location of stakeholders was another criterion for • Focus group discussion (FGD) were selection in order to ensure balance among the designed to target programme 3 zones. For those away from the visited places, beneficiaries. The discussion guide was they were contacted virtually. The respective designed to obtain the beneficiaries’ programme staff advised on stakeholder perspectives on the performance of the selection for SSI. programme based on its intended results and further help establish gaps and needs in Selection of FGD participants targeted the each of the CP outputs. The rationale of incidental beneficiaries of the programme. The including this instrument is its strength in criteria selection depended on kind of providing rich qualitative data and ability to interventions involved and the depth of provide further insights into data obtained understanding, especially on the effectiveness from other categories of respondents. of the programme. These included midwifery students, health workers, health facility staff • Site Visits/Observations: Considering the and youth (peer educators). resources and security constraints in Somalia, the evaluation team purposively The data collection tools primarily consisted of selected sites visited in Somalia and semi structured and focus group discussion conducted a site visit to selected number of guides. These guides contained evaluation facilities and institutions that benefitted questions for each of the thematic areas from UNFPA programme support. The site including i) Sexual and Reproductive Health, HIV/AIDS and Youth, ii) Gender, iii) Population

5 and Development (see Annex 2). Interview 1.4.5 Limitations of the Evaluation and questions were clustered according to the Mitigation Measures evaluation criteria and relevant questions to I. Missing Baseline data: Most of the facilitate data collection and later analysis. Each baseline data were missing in the CP data collection tool was pilot tested with documents; particularly in the Country selected IPs not in the final sample selected for Programme Document, making it the main evaluation. difficult to assess the level of achievement of CP results based on the Table: Interviews and Focus Group Discussions organisational targets. Further, the major component of the analysis for RH Gender PD Tot this evaluation report was based on S P SC S P SC S P SC al L L Z L L Z L L Z qualitative information from interviews # of SSI and desk review and depended on the UNFPA 3 3 3 2 1 1 3 16 7 programme documents for the staff Ministries 3 6 4 2 3 2 2 3 4 29 quantitative achievements. Other IPs 3 2 5 3 1 1 15 Other UN II. Insecurity: Insecurity in some parts of agencies 2 1 3 # of FGDs South Central Somalia did not allow the Beneficiar 2 2 2 2 1 1 1 1 12 lead consultant to conduct site visits ies and interview the various respondents

at their work place. Instead, the UNFPA 1.4.4 Data Validation Mechanism and Analysis field office arranged for interviews of all The consultants routinely validated data at the the selected respondents at a central end of every data collection day through point. Only one respondent could not debriefing sessions with the evaluation team. make it to Mogadishu and was Data analysis took the form of content analysis. interviewed virtually. The national Secondary data obtained through documentary consultants visited the sites and met review complemented primary data obtained with beneficiaries, including conducting through interviews and focus groups and to the FGDs in the midwifery training schools, extent that it was possible, data collected from one-stop centres, MWH and other multiple sources were triangulated to support health facilities. and validate the evaluation findings.

Additionally, the validation of data was sought 1.4.6 Structure of the Evaluation Report through regular exchanges with the CO The Evaluation Report is structured in line with programme managers, technical officers at UNFPA Evaluation Handbook requirements. It national and field levels and the evaluation begins with the Executive Summary and Key manager. Facts Table. These are then followed by Chapter

One, which introduces the evaluation covering the purpose and objectives, scope and methodology. Chapter Two addresses the 7 Includes the Head of Sub-Offices who oversee all the programme country context, development challenges and activities and the Technical Specialists who are not affiliated to any Sub-Office national strategies, and covers the role of

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external assistance. Chapter Three provides an efficiency, sustainability, added value and overview of the UN and UNFPA response and coordination. Chapter Five provides conclusions the current UNFPA Country Programme, from the evaluation covered under the strategic including the financial structure of the current and programmatic. Chapter Six covers the CP which covers the costs according to the recommendations for consideration in on- three programme components and that of +going programme interventions and in the management. Chapter Four provides the development of the 3rd CP derived from evaluation findings and analysis for each findings and the conclusions. The Annexes programme component according to the section includes the Terms of Reference, the evaluation criteria of relevance, effectiveness, evaluation matrix, and list of respondents.

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2.0 COUNTRY CONTEXT

11 2.1 Development Challenges and of peace and stability. Following the collapse, National Strategies armed factions began competing for influence in the power vacuum that followed, bringing

years of violence and insecurity to large parts of Somalia, situated in the Horn of Africa, lies the country. It represents one of the modern along the Gulf of Aden and the Indian Ocean. It world’s most protracted cases of is bordered by Djibouti in the northwest, statelessness.12 Ethiopia in the west, and Kenya in the

southwest. The population of Somalia is Persistent cases of conflicts, drought and floods estimated at 12,3168958. Data from UNHCR have disrupted livelihoods with repeated failure indicates that the refugees of Somali origin in of crops, diminishing water resources and water the Horn of African countries are 973,029.9 The quality, depleted livestock, rising food prices vast majority of the republic's population is and deteriorating purchasing power, thus Somali; they speak a Cushitic language and are degrading coping mechanisms. According to the Sunni Muslims. They are divided into five Human Development Index, Somalia is among principal clans and many sub-clans. Islam is the the five least developed countries. The pre- state religion. Although Somali is the national eminence of customary clan-based systems tongue, Arabic, Italian, and English are used inhibit social cohesion and pervasive traditional officially. There are Bantu-speaking ethnic practices such as polygamy, early and forced groups in the southwest and numerous Arabs in marriage, exclusion of women from education the coastal towns.10 and employment opportunities, result in some

of the worst gender equality indicators in the The Federal Republic of Somalia is faced with world.13 the challenge of rebuilding state institutions in

the midst of recurrent and protracted conflict. There has been registered suffering and Since the collapse of the Siad Barre government violation of human rights for more than two in 1991, Somalia has experienced cycles of decades. The protection of civilians in the conflict that fragmented the country, destroyed context of armed conflict, combined with legitimate institutions and created widespread impunity and lack of accountability, is of major vulnerability. The south central region has concern. Somalia crisis is among the largest and experienced years of fighting and lawlessness, most complex humanitarian emergencies in the while the north-east (Puntland) and north-west world with an estimation of about 2.9 million (Somaliland) have achieved a fragile semblance

11 Somaliland seceded from Somalia and declared independence in 1991, while Puntland became an autonomous state within the Somalia federal structure in 1998. These two regions have established some stability through bottom-up conflict 8http://countryoffice.unfpa.org/somalia/drive/Population- transformation with a sustained focus on resolving issues at the Estimation-Survey-of-Somalia-PESS-2013-2014.pdf community level. They each have a fully-structured government. 9According to data as at 31st October 2015, accessed from For the purposes of this report, they are treated as zonal http://data.unhcr.org/horn-of-africa/regional.php authorities within Somalia. 10 See http://www.infoplease.com/encyclopedia/world/somalia- 12 See http://www.worldbank.org/en/country/somalia/overview land-people.html 13 Somalia Human Development Report (2012)

20 people reported to be in need of humanitarian five mortality rate, it still hosts the worst infant, assistance including an estimated 1.1 million child, and maternal mortality rates in the world. people are internally displaced by recurrent The leading causes of death and disability for droughts, floods and conflict.14 Somali women of reproductive age are complication during pregnancy and childbirth, Somalia’s economy has been shaped and lack of access to skilled birth attendants, sustained by conflict. It has a gross domestic narrowly spaced births, and early adolescent product (GDP) per capita of $284 which marriages. Maternal mortality in Somalia, together with its human development already extremely high and on the rise, is outcomes are among the lowest in the world. significantly higher than that of other Least Poverty incidence is 73 percent (61 percent in Developed Countries (LDCs) globally.18 The urban centres and 80 percent in rural areas).15 percentage of current contraception use among Livestock is the mainstay of the economy with married women of reproductive age in Somalia 60 percent of the population deriving a is just under 15 percent. In addition, use of livelihood from pastoralism-based livestock modern contraception methods is even much production. The export of livestock and meat lower (1.2 percent). These low contraceptive generates 80 percent of foreign currency. Most prevalence rates result most likely from cultural Somalis live in rural areas where traditional and religious factors as well as low education coping mechanisms, clan affiliations and and literacy rates among women, resulting in pastoral mobility have been undermined by minimal knowledge about contraception conflict. Only 7 percent of the rural population methods. enjoys access to improved water sources, compared to 66 percent of people living in Available survey data indicate that Somalia has urban areas. Somalia is heavily dependent on multiple HIV epidemics. In the North West zone, aid and remittances. In the absence of a formal HIV prevalence is generalized, with HIV commercial banking sector, remittance prevalence among women attending antenatal companies have enabled the diaspora to remit care of 1.4 percent and 1.3 percent in 2004 and around $1.3 billion annually to families in 2007, respectively, with those in Somaliland at Somalia; in addition to approximately $1 billion the rate of 0.67 percent in 2015. HIV infection in foreign aid.16 among sex workers is 5.2 percent. The North East and South Central zones have concentrated Somalia faces some of the worst health or low level epidemics. HIV among women indicators in the world; only 30 per cent of attending antenatal care is 0.5 percent in the people have access to health services and one North East, while in the South Central zone the in five children die before their fifth birthdays17. rate is 0.5 percent. The HIV and sexually Although some estimates indicate that Somalia transmitted infections programme still faces a has made visible progress decreasing the under- number of challenges in Somalia including stigma, the weakness of community-based 14 See IDMC estimates as of 09 October 2014 (rounded figures) groups in supporting antiretroviral therapy http://www.internal-displacement.org/global-figures 15 UNDP (2012): Human Development Report 16 See 18 http://www.worldbank.org/en/country/somalia/overview#1 http://www.undp.org/content/somalia/en/home/mdgoverview/o 17 WHO: Somalia Health Update - May – June 2014 verview/mdg5.html accessed on 2/10/2015

21 services and the low service uptake of TB/HIV programming work, or to monitor economic co-infection patients, including children.19 and social developments.

With more than 70 percent of the population Gender inequality in Somalia is alarmingly high under the age of 30, Somalia is a young country at 0.776 on a scale of 0 to 1 (complete with enormous development needs. Among the inequality), the fourth worst position globally more urgent is food security which, together on the Gender Inequality Index (GII). Women with displacement of a large share of the suffer severe exclusion and inequality in health, population, has led to a continuing employment and labour market participation.22 humanitarian crisis that has spilled over into the Even though statistics are of mixed quality and wider region. According to the UNDP in its 2012 poorly maintained, Somali women continue to Human Development Report, The future of face extremely high maternal mortality, rape, Somalia and the well-being of its people rests female genital mutilation (FGM), child marriage significantly on empowering its large youth rates, and violence against women and girls. population.20 Despite all stakeholders including the Federal Government of Somalia, local authorities, and Somalia is still characterized by a severe lack of the international community acknowledging basic economic and social statistics for that gender-based violence (GBV) is persistent development and policy formulation. Most of throughout Somalia, widespread discrimination the data on the country statistics are estimates and abuse against Somali women continues and from different sources and are not consistently services to survivors are only available in very updated. The situation has been exacerbated by limited areas and criminal prosecutions the two-decade conflict and the resulting frequency is negligible.2324 FGM afflicts an collapse of the country’s institutions. The estimated 98 percent of Somali women and existence of de facto spatial and political girls.25 Young women end up greatly entities results in complex economic realities disadvantaged in all spheres of life, a reality and complicates the issue of data reliability and that hinders their rights and development, and consistency for Somalia as a whole.21 perpetuates intergenerational cycles of gender Inadequate capacity of the government to inequality and the feminization of poverty.26 develop statistical systems to help in collection and analysis remains problematic. Further, Traditional laws, used in lieu of a state judiciary, there is no central point of reference for are highly discriminatory against women as the information access and dissemination on the traditional Somali society does not openly aspects of development and discuss issues such as domestic violence and departments/sectors (ministries) still depend on rape, which further hampers women’s access to their data for referencing as the statistical justice. system is very weak. As a result, it is almost impossible to undertake planning and 22 UNDP (2012): Somalia Human Development Report 23 Somalia Gender-Based Violence Working groups Strategy 2014 - 2016 19 See http://www.emro.who.int/som/programmes/hiv-sti.html 24United Nations Human Rights Council 20 UNDP (2012): Somalia Human Development Report 25http://www.unicef.org/cbsc/files/UNICEF_FGM_report_July_20 21 African Development Bank (2013): Somalia Country Brief 2013 - 13_Hi_res.pdf 2015 26 UNDP (2012): Somalia Human Development Report

22

2014.28 While a majority of aid has been Efforts of Somali women to rise above directed toward humanitarian assistance in the oppression have been isolated and short lived, past, an increasing proportion of ODA is being and they have yet to achieve the critical mass in directed toward longer-term development in decision-making required to effect wider Somalia under the New Deal. change. Even though their participation and role in politics and decision-making spheres The United Nations (UN) Resident and remains limited, data indicates that since the Humanitarian Coordinator oversees and civil war, women in Somalia have increased coordinates the work of the different UN economic involvement and decision-making agencies working in Somalia. All the UN power within the household.27 agencies operate within the United Nations Somali Assistance Strategy (UNSAS), an 2.2 Role of External Assistance overarching five-year plan for UN agencies. The UNSAS covers the UN's humanitarian, recovery

and development priorities in Somalia from Somalia has been among the top 10 recipients 2010 until 2015, and defines how assistance of humanitarian assistance in seven of the last should contribute to the national priorities 10 years. Humanitarian assistance peaked at identified by the Somali authorities themselves US$1.1 billion in 2011, when it was the second in their own Reconstruction and Development largest recipient of humanitarian assistance. Programme (RDP). There are 19 UN agencies Between 2003 and 2012 Somalia received active in Somalia; WFP, FAO, WHO, UNFPA, UN US$5.4 billion in official development assistance OCHA, UNICEF, UNMAS, UNSOM, UNSAS, UNV, (ODA), making it the 43rd largest recipient. In UNIDO, UNHCR, UNDP, IOM, UNOPS, UNCDF, the same 10-year period the proportion of ODA UNODC, World Bank and UN Women. given as humanitarian assistance averaged 68 percent, ranging from 49 percent in 2010 to 77 percent in 2011. Somalia received the equivalent of 15 percent of its gross national income (GNI) as aid (ODA) in 2012. The United States (US$181 million) was the largest donor of humanitarian assistance to Somalia in 2012, followed by the EU institutions (US$83 million) and the United Kingdom (US$82million). The US provided 18 percent (US$678 million) of all humanitarian assistance to the country between 2003 and 2012. In 2013, Somalia had only 51 percent of the required US$ 1.2 billion through the UN-coordinated appeal met; while as of November 2014, the country’s Strategic Response Plan requested US$933 million for

28 See http://www.globalhumanitarianassistance.org/countryprofile/so 27 http://genderindex.org/country/somalia malia

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3.0 UN/UNFPA RESPONSE AND PROGRAMME STRATEGIES 3.1 UN and UNFPA Response reproductive health, the realisation of reproductive rights, and the reduction in The United Nations (UN) has been involved in maternal mortality. The work of the Somalia since independence in 1960, carrying organisation is centred on attaining this goal, out activities that help alleviate poverty and particularly through an enhanced focus on suffering, encourage development, support family planning, maternal health, and HIV/AIDS. peace-building and security and mitigate the effects of the conflict on the Somali people. The UN response in Somalia is coordinated under the UN Country Team, led by a resident coordinator. Currently, the UN’s work is guided by the New Deal29, which emphasises Somali- owned and Somali-led development and effective aid management and delivery that mirrors development needs among other principles. It also helps in strengthening its partnership in Somalia.

3.2 UNFPA Response through the Programme

UNFPA promotes the right of every woman, Figure 1: The “Bull’s Eye” as UNFPA Global man and child to enjoy a life of health and equal Strategic Goal opportunity. It supports countries in using population data for policies and programmes to reduce poverty and to ensure that every The Strategic Plan revolves around four pregnancy is wanted, every birth is safe, every outcomes, achieved through 15 outputs and young person is free of HIV&AIDS, and every girl developed to achieve the “bull’s eye” goal. and woman is treated with dignity and respect These are: as espoused in the UNFPA motto - because • Outcome 1: Increased availability and use of everyone counts. The UNFPA Global Strategic integrated sexual and reproductive health plan 2014 – 201730 has a main goal services (including family planning, characterized as the “bull’s eye”: the maternal health and HIV) that are gender- achievement of universal access to sexual and responsive and meet human rights standards for quality of care and equity in

29http://www.undp.org/content/unct/somalia/en/home/what- access we-do/new-deal-for-somalia.html 30http://www.unfpa.org/sites/default/files/resource-pdf/Strategic percent20Planpercent2Cpercent202014-2017.pdf

23 • Outcome 2: Increased priority on The programme’s population and development adolescents, especially on very young focus was on strengthening the institutional adolescent girls, in national development capacity of the government to respond to policies and programmes, particularly population and development needs in increased availability of comprehensive emergency, recovery and development sexuality education and sexual and situations. In the area of gender equality, reproductive health services UNFPA supported and facilitated the work of • Outcome 3: Advanced gender equality, coordinating bodies to prevent and respond to women’s and girls’ empowerment, and gender-based violence. UNFPA provided reproductive rights, including for the most commodities and training support to local vulnerable and marginalized women, partners working with the survivors of gender- adolescents and youth based violence. Lessons learnt from the first • Outcome 4: Strengthened national policies cycle of assistance included the need for flexible and international development agendas planning that considers the political context and through integration of evidence-based the differing stages of development in the three analysis on population dynamics and their zones, and the feasibility of delivering essential links to sustainable development, sexual services through partnerships between non- and reproductive health and reproductive governmental organisations and governmental rights, HIV and gender equality organisations in situations where government capacity is weak. 3.2.1 Brief description of UNFPA previous cycle strategy, goals and achievements 3.2.2 Current UNFPA Country Programme

The first UNFPA Somalia country programme The 2nd Somalia Country Programme seeks to 2008-2009, was extended through 2010. The improve the overall quality of life of the Somali programme was based on priorities identified in people. It was developed based on national the United Nations Transition Plan for Somalia, priorities identified in the Somalia 2008-2010. Achievements in the area of Reconstruction and Development Programme, reproductive health included the development 2008-2012, and the United Nations Somalia 31 of a reproductive health strategy for Somaliland Assistance Strategy (UNSAS), 2011-2015 , and Puntland, strengthened capacity of service which focuses on three areas: (a) emergency providers to increase skilled birth attendance, response, (b) the transition from conflict to provision of family planning services in selected peace and from crisis to recovery, and (c) institutions, including health facilities serving longer-term development. The programme is internally displaced people in Mogadishu, and aimed at contributing to the three outcomes of implementation of the fistula management the United Nations Somalia Assistance Strategy campaign. The programme also supported the (UNSAS): (a) Somali people have equitable establishment of the Youth Peer Education access to basic services in health, education, Network (Y-PEER) and youth advisory panels. shelter, water and sanitation, (b) Somali people

31 UN programmes were under the UNSAS umbrella up to 2014. UN Somalia developed an Integrated Strategic Framework for 2014-2016, which is aligned to the New Deal/Somalia Compact

25 benefit from poverty reduction through mechanism through the UN stream, and it was equitable economic development and decent through this that UNFPA had to be fully work, and (c) Somali people live in a stable engaged in the new thinking jointly with other environment where the rule of law is respected UN Agencies and Donors that the country and rights-based and gender-sensitive programme was extended. The extension was development is pursued. For the special approved by the UNFPA Executive Board. situation in Somalia, the United Nations Country Team (UNCT) decided to use the UNSAS as the In order to ensure that UNFPA Somalia framework for assistance and to use the strategies are in line with the global UNFPA Country Programme Action Plan (CPAP) as an strategic plan 2014-2017, the CP contributes internal document to guide implementation. directly to the goals and interventions are The 2nd Country Programme (CP) was approved focuses on the following priorities by the UNFPA Executive Board for the period (a) Decreasing maternal mortality 2011-2015. (b) Managing population growth and the “youth bulge” and The current CP was extended for one (c) Improving humanitarian operational year, ending 2016. This was done in preparedness and response. 2014 with the United Nations Integrated Strategic Framework (ISF) for Somalia (2014 - The above priorities are addressed through the 2016), which is aligned to the New Deal/Somali three programme components. It mainstreams Compact. After the signing of the Somalia the needs of youth and focuses on the Compact in the presence of the President of empowerment of young women. Table 3.1 Somalia and the Secretary-General of the demonstrates the alignment of the UNFPA United Nations in October 2014, the UN team in Somalia Country Programme with the UNFPA Somalia initiated the design and supporting Strategic Plan. implementation of programmes that respond to the priorities and principles of the ISF, which details planning frameworks for each Peace state building goals (PSG) for 2015-2016. Through the arrangement, the funding mechanisms were detailed and a funding mechanism was established (the UN Multi- Partner Trust Fund (UNMPTF)) to allocate funding to UN agencies. Given the developments and the national commitments to change, peace and state building goals and coordination, there was common consensus among the UN agencies, through the UNCT to extend their respective country programmes to fully align with the national development framework (ISF) and cycle. UNFPA was eligible to receive funding through the UNMPTF

26

Table 3.1 Alignment of Somalia Country Programme with UNFPA Strategic Plan32 UNFPA SP 2014 - 2017 Outputs UNFPA Somalia 2nd CPAP 2011 – 2016 Outputs SP Outcome 1: Increased availability and use of integrated CP Output 1: Improved health-care delivery to sexual and reproductive health services (including family reduce maternal and neonatal mortality and related planning, maternal health and HIV) that meet human morbidity rights standards for quality of care and equity in access

SP Output 3: Increased national capacity to deliver comprehensive maternal health care services.

SP Outcome 1: Increased availability and use of integrated CP Output 2: Increased capacity of government, sexual and reproductive health services community-based and non-governmental (including family planning, maternal health and HIV) that organisations to offer high-quality, comprehensive meet human rights standards for quality of care and equity sexual and reproductive health services, education in access and information for young people, with a focus on young people who are most at risk SP Output 1: Increased national capacity to deliver integrated sexual and reproductive health services. CP Output 3: Increased advocacy and community engagement to promote the reproductive health and SP Outcome 3: Advanced gender equality, women’s and rights of women and adolescent girls and to girls’ empowerment, and reproductive rights, including for eliminate harmful practices affecting maternal health the most vulnerable and marginalized women, adolescents and youth.

SP Output 10: Strengthened capacity to prevent gender- based violence and harmful practices and enable the delivery of multi-sectoral services, including in humanitarian settings. CP Output 4: Enhanced systems and mechanisms to SP Outcome 3: Advanced gender equality, women’s and prevent and protect against all forms of gender- girls’ empowerment, and reproductive rights, including for based violence, using a human rights perspective, the most vulnerable and marginalized women, adolescents including in emergency and post-conflict situations and youth.

SP Output 9: Strengthened international and national protection systems for advancing reproductive rights, promoting gender equality and non-discrimination and addressing gender-based violence SP Outcome 4: Strengthened national policies and CP Output 5: Strengthened capacity of selected international development agendas through integration of sectoral ministries and partner organisations to evidence-based analysis on population dynamics and their collect, analyse, disseminate and utilise links to sustainable development, sexual and reproductive disaggregated population data for planning and health and reproductive rights, HIV and gender equality. delivering humanitarian, recovery and development assistance SP Output 12: Strengthened national capacity for production and dissemination of quality disaggregated data on population and development issues that allows for

32 UNFPA Somalia to the UNFPA Global Strategic Plan, 2014-2017 Aligning Document

27 mapping of demographic disparities and socio-economic inequalities, and for programming in humanitarian settings SP Outcome 4: Strengthened national policies and CP Output 6: Improved systems for generating, international development agendas through integration of analysing and disseminating disaggregated evidence-based analysis on population dynamics and their population and related data, with a focus on links to sustainable development, sexual and reproductive improving the monitoring of maternal health at zonal health and reproductive rights, HIV and gender equality. and sub-zonal levels in order to inform interventions in this area SP Output 15: Strengthened national capacity for using data and evidence to monitor and evaluate national policies and programmes in the areas of population dynamics, sexual and reproductive health and reproductive rights, HIV, adolescents and youth and gender equality, including in humanitarian settings Programme Coordination and Assistance (PCA) SP Output 1: Enhanced programme effectiveness by improving quality assurance, monitoring, and evaluation; SP Output 2: Improved mobilisation, management and alignment of resources through an increased focus on value for money and systematic risk management; SP Output 3: Increased adaptability through innovation, partnership and communications

3.2.3 The Somalia CP Intervention Logic services by young people, women and men, especially in the fight against HIV and AIDS, and The outcome of the Reproductive Health and family planning uptake. It has two distinct Rights (RHR) component of this programme is outputs, which are: Output 1: Improved health- the demand for, access to and utilisation of care delivery to reduce maternal and neonatal equitable and improved reproductive health mortality and related morbidity; and Output 2: services are increased in all three zones, Increased capacity of government, community- including in settlements for internally displaced based and non-governmental organisations to people. The component emphasizes maternal offer high-quality, comprehensive sexual and health services delivery through partnership reproductive health services, education and and capacity strengthening to facilitate information for young people, with a focus on provision of basic and comprehensive those who are most at risk. emergency obstetric care as well as prevention and management of obstetric fistula, Family According to the programme design, UNFPA planning and RH commodity and security aims to achieve the first output of the strengthening, HIV prevention, youth, and component through developing, monitoring and adolescent sexual and reproductive health. It coordinating the implementation of the road uses a rights-based, gender-sensitive and map for reducing maternal mortality, building culturally sensitive approach and adopts the capacity of skilled birth attendants, behaviour change strategies expected to strengthening midwifery at the community level increase access to, and the utilisation of, to improve maternal health, strengthening the

28 capacity of selected health facilities to provide ensured, along with institutional capacity and basic and comprehensive emergency obstetric systems for planning, delivering and monitoring care as well as obstetric fistula repair, humanitarian, recovery and development strengthening referral systems for emergency policies and programmes, especially at zonal obstetric care, strengthening reproductive and sub-zonal levels. The first output aims to health commodity security, including the ensure improved systems for generating, provision of emergency delivery kits, increasing analysing and disseminating disaggregated and consolidating partnerships to address population and related data, with a focus on reproductive health needs within the context of improving the monitoring of maternal health at humanitarian crises and emergency situations, zonal and sub-zonal levels in order to inform and supporting the production and interventions in this area. The second one aims implementation of training on standard to ensure a strengthened capacity of selected reproductive health service protocols. sectoral ministries and partner organisations to collect, analyse, disseminate and utilise The second output of this component was disaggregated population data for planning and designed to include adolescent sexual and delivering humanitarian, recovery and reproductive health and HIV prevention in the development assistance. national youth strategy. It includes increasing the access to and use of integrated HIV/AIDS The strategies and interventions for attainment and reproductive health services, supporting of the first output of the component include; community-based interventions with selected Data collection and analysis of data related to line ministries and the National AIDS reproductive health and gender, support on- Commissions, building the capacity of youth the-job basic statistics capacity strengthening groups and networks to disseminate knowledge for line ministries’ data compilers, recruitment and information on reproductive health, helping and placement of statistical experts in line ministries and civil society organisations to Ministries of Planning; Formulation of design and establish youth-friendly health population or statistics policies; in collaboration facilities, supporting the development of with Ministry of Planning, Health and Women behaviour change communication interventions Affairs UNFPA support the development and to reduce high-risk behaviour, and maintenance of the Health Management strengthening partnerships with organisations, Information System and a gender disaggregated groups and networks that address the needs of database respectively; Technical assistance and those populations who are most at risk, capacity strengthening for data production including young people affected by the conflict. activities and preparation of reports by each zone on progress towards achievement of the The Population and Development (P&D) ICPD Goals and Millennium Development Goals component of the programme was developed 4 and 5; Building the capacity and providing to build the capacity of the government to technical assistance to government and other collect, analyse and use data. In the CPAP, the partners to integrate maternal mortality and P&D component has one outcome and two morbidity into emergency preparedness and outputs. The outcome is the availability of response; and Formulation of population or reliable demographic and related data is statistics policy. On the other hand, output two

29 is to be achieved through the provision of • and targeting community and religious technical support, capacity strengthening for leaders, young men and boys with better planning and monitoring of humanitarian awareness campaigns on early marriage assistance and recovery. and female genital mutilation/cutting.

The outcome of the Gender Component of the Strategies to ensure achievement of the second programme is to ensure an improved socio- output included: cultural environment to advance gender • strengthening the capacity of selected equality, reproductive health and women’s and non-governmental and community- girls’ empowerment, including for the most based organisations to provide health vulnerable and marginalized women, and psychosocial support to survivors of adolescents and youth. Implemented in an sexual and gender-based violence, integrated manner throughout the programme, including support to address the the component has two outputs: (1) an complications of female genital increased capacity for advocacy and community mutilation/cutting engagement in the reproductive health and • supporting the institutionalization of right of women and adolescent girls and the modules to prevent sexual and gender- elimination of harmful practices affecting based violence in a training-of-trainers maternal health; and (2) creation of enhanced curriculum for health-care providers systems and mechanisms for prevention and of • strengthening community-level ‘safety protection from all forms of gender-based nets’ for survivors of sexual and gender- violence, using human rights perspective, based violence; promoting the including emergency and post-conflict involvement of men, boys and situations. community leaders in preventing sexual

and gender-based violence The strategies and activities implemented • and addressing sexual and gender- towards the first output included: based violence as part of humanitarian • raising awareness of the effects of response efforts and as per the female genital mutilation/cutting and minimum initial services package. early marriage on maternal mortality

and morbidity The programme logic in Figure 3.1 gives an • advocating the implementation of laws overview of the flow of results, from the prohibiting female genital activities to the intended results, including how mutilation/cutting they contribute to the UNFPA global results and • enhancing community-based efforts to those of the UN country level. address the harmful effects of early marriage and female genital mutilation/cutting • strengthening community-based initiatives to increase the retention of girls in formal and non-formal education

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Figure 3.1 UNFPA Somalia Country Programme Intervention Logic33

33 It should be noted that the Compact Deal’s Integrated Strategic Framework (ISF) replaced the 2011-2015 UN Somali Assistance Strategy (UNSAS) in 2013. The UNFPA CP was therefore updated to align to the Compact. See further https://unsom.unmissions.org/Portals/UNSOM/Somalia%20ISF%202014-2016%20FINAL%20signed.pdf

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3.2.4 The Financial Structure of the Programme 6.5 million for gender equality and US$ 0.7 The CPD had proposed indicative UNFPA million for programme coordination assistance. assistance of US$ 27.2 million. Out of the US$ 27.2 million, US$ 12.7 million was to be from During the period of evaluation, the programme regular sources and US$ 14.5 million through surpassed the proposed indicative budget, co-financing modalities and/or other, including reaching a total of budget of US$ regular resources, for a five-year period. Of the 74,871,837.38, and a total expenditure of US$ US$ 27.2 million, US$ 14.0 million was allocated 65,860,659.82. Figure 3.2 shows the distribution to reproductive health and rights, US$ 6.0 of the yearly budget by source. million for population and development, US$

Figure 3.2: Yearly Budget by Source of Funds Yearly Budget by Source of Funds

20.00

18.00 19.01 16.00

14.00 16.40

12.00

10.00 11.68

8.00 USD Millions

6.00

4.00 4.97 4.82 4.62 4.08

2.00 3.73 3.28 2.27 0.00 2011 2012 2013 2014 2015

Regular Source Other Sources

Source: UNFPA CO34

34 Financial data was provided by the UNFPA CO in Nairobi

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The programme budget gradually increased to the needs of the Somali people and the from 2011, with the highest increase registered ability of the CO to fundraise. There was a sharp in 2014 where the budgeted amount was decrease in budget in 2014, but this increased almost triple (US$ 21,224,361.18) the amount again in 2015. Figure 3.3 shows the distribution of the year 2012 (US$ 7,806,395.72), showing of programme budget and expenditure by year. the responsiveness of the country programme

Figure 3.3: Distribution of Budget and Expenditure by Year Distribution of Budget and Expenditure by Year

25.00 23.64 21.22

20.00 $22.11 16.65

15.00 $15.88 $16.65

10.00 7.81 USD Millions 5.56

5.00 $6.54 $4.67

0.00 2011 2012 2013 2014 2015

Budget Expendinture

Source: UNFPA CO

The RHR component has the highest share of budget, then both P&D and GE spent almost the the budget and disbursement followed by the same amounts. Figure 3.4 shows the P&D component, the Gender Equality distribution of the programme expenditure over component, and then management, the period of evaluation per component by respectively. Further, on expenditure, RHR had year. the highest amount spent, nearly half the total

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Figure 3.4 Expenditure Amount per Programme Component by Year

Expenditure per Programme Component by Year

14,000,000 12,000,000 10,000,000 8,000,000 6,000,000 4,000,000 Amount in US$ 2,000,000 0 2011 2012 2013 2014 2015 Programme Year

RH P&D GE

Source: UNFPA CO

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4.0 EVALUATION FINDINGS

4.1 Introduction relevance to the UNSAS and UNFPA priorities and mandate. The evaluation also sought to establish This section presents the findings of the evaluation how the target beneficiaries involved in based on the three programme components. The determining the kinds of activities being first section is the findings on the reproductive implemented or supported through the CP. health and rights component. Second is population and development, and third is the gender The UNFPA’s Somalia Country Programme component. The analysis of the performance on Document (CPD) was developed to address the gaps each component follows the evaluation criteria of identified from the previous programme cycle relevance, effectiveness, efficiency and based on the lessons learnt. The programme’s sustainability. The findings and analysis based on reproductive health and rights (RHR) component the UNFPA-specific criteria of coordination and was implemented and was in line with the Somalia value added is made separately for the whole CP at health sector strategic plan (HSSP, 2013 – 2016) the end of this section. The extent to which the results areas 2 (Increase the health workforce, results have been realised is described in the text improve their skill balance and strengthen their with a section summary at the end of every capacity), 3 (Roll out the provision of equitable component covering the evaluation questions and health services and functional health facilities in all UNFPA-specific criteria of assessment. regions) and 5 (Ensure provision of appropriate and 35 sufficient medical products and technologies). However, the 2nd Country Programme only 4.2 Reproductive Health & Rights contributed to the strategic plan as the HSSP results Component areas were too broad, as well as ambitious for achievement within the time frame covered. 4.2.1 Relevance Through the same component, the programme led and supported the development of the Youth 36 EQ 1: To what extent were the programme Policy , whose objective is to create a framework interventions consistent with the needs of the that will enable youth in Somalia to address issues beneficiary populations and to what extent was it that are unique to them and their communities aligned with government priorities as well as with through dialogue. HIV and AIDS activities were also policies and strategies of UNFPA? supported during the life of the CP. UNFPA EQ 2: How well was the CPAP aligned with the ICPD contributes to RHR mainly through the Ministries of actions and MDGs as well as with the UNFPA Health (MoH), Ministry of Youth and Sports (MoYS), Strategic Plans? and the National AIDS Commissions across the three zones. In establishing the extent to which the programme is relevant, the evaluators considered the programme interventions, their relevance to 35 Somalia Health Sector Strategic Plan January 2013 – December 2016 identified country needs, how they addressed the 36 Key informant interviews with staff of Ministry of Labour, Youth and Sports in Garowe; Ministry of Youth and Sports in Mogadishu; UNFPA government priorities and development plans, and Staff and 2015 COAR

35

The RHR component is relevant as it addressed country’s health priorities and population needs identified and existing needs in Somalia37. At the with its focus on improving the quality of care, time of the design, Somalia had some of the worst increasing demand and service uptake, and health indicators in the world. The child and improving quality, collection, analysis and use of maternal mortality rates were among the highest, data to assess programme performance. These with one in every ten children dying before seeing approaches align with the Campaign on Accelerated their first birthday; while on the other hand, one Reduction of Maternal Mortality in Africa out of twelve women dying due to pregnancy (CARMMA)39. related causes. Further, only nine percent of the births were attended by skilled staff, among the The activities and design of the CP are relevant to lowest rates of access to skilled maternal services. the Somalia context. It is during the period that saw Somalia is still characterized with high fertility rates, the development of the Health Sector Strategic Plan putting the women at a high risk of mortalities and (HSSP), the youth policy and other related morbidities around child birth especially with the guidelines that promote standardized and quality low access to basic health services, including family implementations of the interventions as targeted planning. There was also low status of women and and within the RHR framework. The UNFPA high rates of female genital mutilation (FGM/C). The programme supported the development of family programme addressed identified barriers to planning and clinical management of rape accessing reproductive healthcare through raising guidelines, which are applied and continue to guide awareness on benefits; supporting logistical means service delivery processes, thereby providing to reach the underserved nomadic and rural strengthening of RHR. communities; supporting improved quality of RH nd services; and continued support on commodity The UNFPA Somalia contributions in the 2 CP’s supplies which were intermittent. were fully aligned to the UNFPA Strategic Plan and the United Nation’s Integrated Strategic Framework 40 As stated in the previous chapter, Somalia has high (ISF) as stated in the alignment documents. The maternal mortality rates and infant mortality alignment of the CP to the UNFPA Strategic Plan making it imperative to address the needs through and ISF, including UNSAS was implicit from the improved access to and uptake of basic emergency CPAP and even though there were no changes obstetric and neonatal care (BEmONC). Delays in made to the CPD, the programme was refocused, seeking care and poor quality care on arrival at laying more emphasis on key strategic areas, facilities have been the most significant of the three enhancing RHR results and integration of delays38 in access to effective emergency care. programme interventions and further strengthening Through the 2nd CP, UNFPA is responding by the national execution modality. There is strengthening capacity for EmONC and equipment consistency of the CPAP with the UNSAS outcome 1 of the health facilities across the country. The (which states that Somali people have equitable programme is highly relevant and contributes to the access to basic services which include health, education, shelter, water and sanitation) as 37 Key informant Interviews in Hargeisa, Garowe and Mogadishu; CP presented in the intervention logic (as in Figure 3.1) Documents and UNFPA Annual reports 38There are three types of delays contributing to maternal mortality, 39 which are; 1. Delay in making decision to seek care; 2. Delay in arrival at http://countryoffice.unfpa.org/somalia/2014/12/02/11059/ a health facility; and 3. Delay in receiving adequate treatment. – See puntland_launches_carmma/ 40 http://www.ncbi.nlm.nih.gov/pubmed/8042057/ for further reading. UNFPA Somalia Aligning To The Strategic Plan, 2014-2017

36 of the country programme. The CP also contributed context of Somaliland, Puntland and South Central to the achievement of the Somalia response to the and on-going health sector reform initiatives. Millennium Development Goals (MDGs) 3 (promote UNFPA’s participation in this programme in Somalia gender equality and empower women, 4 (reduced makes it highly relevant given the extent of unmet child mortality), 5 (improve maternal health) and 6 needs and prevailing health needs. (on combating HIV&AIDS, TB, malaria and other infectious diseases). UNFPA also upheld the spirit of The evaluation established the involvement of the partnership to build on synergy to enhance target populations in determining the kind of achievement of its results. This was seen through interventions that they require. It was evident from employing a collaborative approach to work with assessments conducted by the various stakeholders, various stakeholders to ensure that services documenting gaps and capturing the needs of the reached the target populations41. affected43. These needs formed part of planned activities supported through UNFPA CP support. Somali Joint Health Nutrition Programme (JHNP UNFPA would also make decisions to recommit 2012 -2016) is an effort of UNICEF (the United resources to identified areas of gaps arising from Nations Children’s Fund), WHO (World Health the programme review and planning meetings Organisation), UNFPA, the Somali health authorities facilitated and coordinated by its implementing and donors to improve the health of mothers and partners and beneficiaries44. It was notable when children and to strengthen the Somalia Health Care UNFPA expanded its support to MoH-managed System42. In particular, JHNP aims to support health facilities in Marka, Baidoa and Kismayo, in sustained and improved reproductive, maternal, areas that were previously supported by Médecins new-born and child health (RMNCH) and nutrition Sans Frontières (MSF) before closing its outcomes for Somali women, girls, children and programmes in Somalia45. All these among other their communities, while strengthening the systems service provision exhibit the relevance of the that support improved quality and access to health UNFPA country programme. care. UNFPA implemented its RHR component in the umbrella of JHNP and this was effective in The family planning (FP) component is also highly delivering its maternal health services through a relevant in as maternal mortality rates are high complementary manner. among the Somali women. UNFPA CP continues to strengthen reproductive health commodity security The JHNP supports critical elements of the New (RHCS). UNFPA also supported the government in Deal initiative ‘the Somali Compact’, the Somali ‘Six pillar’ policy for peace building & state-building and 43 Interviews with IPs; AWPs more specifically implementation of the in-country Community-led discussions documented on GBV and FGM, facilitated by IRADA in Gebiley and Marodi Jeeh regions in Somaliland informed developed Health and Nutrition Policies, Health the projects and interventions that UNFPA funded on GBV and FGM; Sector Strategic Plans (HSSPs), aligned strategies KAP Surveys on HIV&AIDS conducted among the youth by Y-Peer Network informed interventions funded by UNFPA in Puntland; UNFPA and relevant United Nations cooperation strategies. staff interviews

Its implementation also considers the specific 44 Interviews with IPs in Hargeisa, Mogadishu and Garowe; review of AWPs 45https://www.humanitarianresponse.info/system/files/documents/file 41 Key informant interviews with IPs in Garowe, Hargeisa and s/Healthpercent20Clusterpercent20Bulletin-Sept- Mogadishu; UN Partners; and UNFPA Staff and Reports Octpercent202013.pdf 42 See more about the programme from http://jhnp.org/about-jhnp/ Somalia Situation Report; Interviews with UNFPA RH Technical Advisor [Accessed on 10/12/2015] and MoH staff in Mogadishu

37 developing family planning guidelines (referred to closer to MoH facilities where patients could visit as birth spacing for contextualization). Government directly; a case in point is where a MWH is Staff were also trained on the techniques for supported near Benadir Hospital which is also provision of the family planning services. supported by UNFPA, through Swisso Kalmo50. However, the centre complements the services The CP also supported underserved areas in Somalia provided by the hospital which is a CEmONC centre through outreach activities, implemented by the given the population in Mogadishu far outweighs ministries of health, which was applauded by the the capacity of the hospitals available, and to have staff as very appropriate for increasing access to all women giving birth in CEmONC centres would be services by the populations46. The humanitarian much less cost effective than having lower level assistance programme of the CP contributed centres as standard51. There was also a gap in immensely in improving access to skilled birth coordination between UNFPA’s humanitarian attendance by the IDPs through establishing assistance unit and the MoH in South Central as the maternity waiting homes (MWH)47 in IDP ministry is not involved in monitoring of the related settlements48. UNFPA provided technical and activities.52 financial support in the running of the activities in the MWH. Staff salaries and supplies in these set- Given the unmet needs in maternal health, UNFPA ups were financed by UNFPA. In designing the supports the Somalia MoHs to implement and programme plan, UNFPA employed a minimum strengthen access to family planning (FP). Notable initial service package for lifesaving interventions during the period of evaluation is the revision of the related to RHR and Family planning for those National RH strategy through working with the affected by disasters and emergencies. The policy makers, supporting the development of FP programme supported the Somali returnees from guidelines and training of trainers (ToT) on FP to Yemen and Yemeni refugees. It also effectively reach more health workers across the country. responded during the 2013 cyclone in Eyle in Further, UNFPA supported in contraceptive supply Puntland as those affected were supported with and related commodity procurement to meet the MISP for emergency49. Even though this was needs of the women of reproductive age including appropriate in most situations, there were instances for young people. These are highly relevant in Mogadishu where it was felt that some of the activities to address unmet needs within the MWHs were not necessary as they were established country.

46 Interviews with MoH staff in Puntland, Somaliland and FGS Adolescent and Youth Sexual Reproductive Health http://countryoffice.unfpa.org/somalia/2015/06/29/12360/reaching_o ut_to_the_underserved_in_somalia/; The adolescent and youth sexual reproductive http://countryoffice.unfpa.org/somalia/2015/08/31/12716/more_repr health (ASRH) was not initially a priority programme oductive_health_services_for_the_underserved_in_somalia/ 47 The name of maternity waiting homes was previously reviewed and in the initial stages but later given prominent focus recognised to be misleading, as they are maternity centres offering during alignment to the UNFPA Strategic Plan. The clinical services rather than waiting homes purely for awaiting labour. For the purpose of this evaluation report, Maternity Waiting home is alignment focuses on Outputs 6, 7 and 8 of the used but the role is recognized. 48 Strategic plan under Outcome 2 which seeks to Interviews with IPs in Mogadishu and Garowe; FGDs at Jowley MWH in Garowe and Hodan district in Mogadishu with beneficiaries; End of increase priority on adolescents, especially on very Project Evaluation report on MWHs in Somalia https://www.humanitarianresponse.info/system/files/documents/files/ Healthpercent20Clusterpercent20Bulletin-Sept-Octpercent202013.pdf 50 Key Informant Interviews Mogadishu 51 Feedback from UNFPA 49 Interviews with MoH staff in Garowe 52 Ibid

38 young adolescent girls, in national development stigmatised whenever they sought youth-friendly policies and programmes, particularly increased services as the RH services mostly perceived to availability of comprehensive sexuality education associate with those who are married or suffering and sexual and reproductive health. The from certain ailments like HIV and other sexually programme’s design was also responding to a gap transmitted infections. UNFPA further enhanced the realised from the previous country programme, youth programming by creating a unit within the RH which was found not to sufficiently address the component, equipping it with staff who are also needs of the Somali youth. youthful to drive the youth agenda. This integration was also relevant since the Somali youth consist of Development, humanitarian assistance and peace- 70 percent of the population and given that most of building, can be more responsive by mobilizing and the RH service seekers or targets were the youth. empowering Somalia youth as positive agents of This is also given the fact that there is a very high change53. The UNFPA Somalia programme rate of early marriage56, which contributes to poor integrated the ASRH interventions across all the obstetric outcome. UNFPA also integrated the three programme components as a cross-cutting youth issues through the training of the midwives theme. They were mainly involved in advocacy on where those selected to participate in the training issues affecting them and the general community. were between the ages of 19 and 20 years old. After The approach was used on UN System-Wide Action graduation, this also contributed to the Plan (SWAP) which seeks to enhance the coherence employment of the youth to earn a living. and synergy of United Nations’ system-wide activities in key areas related to youth Somalia’s HIV prevalence among the adult development54. To address this, UNFPA population is estimated to be between 0.5 percent - implemented the activities through its brain-child 0.7 percent and is said to be on the rise57. The rise youth programme, Y-PEER Network. The approach in infections is being blamed on ignorance, cultural included the use of evidence-based advocacy; barriers and fear of stigmatization which hampers capacity development for ASRH services; and many people from finding out their HIV status58. supporting the Life Skills, Sexuality, HIV and AIDS Other factors include the impact of the conflict and Education; and promoting youth leadership an ensuing increase in sexual assaults59. The programmes. All these are highly relevant to the programme is highly relevant as it targets Somalia situation, as ASRH have not been prevention activities across the country, including in sufficiently addressed to date55. The GBV the IDP settlement. Integration of HIV and AIDS programme also benefitted the youth as most of with the youth programming is a step in the right the survivors are young, in addition to involving direction as they are considered the most them to carry out the campaigns. vulnerable groups in Somalia [60][61]. Relevance of the CP’s focus on the Somali youth and HIV&AIDS is Integration of the youth programming into the mainstream CP service delivery results was relevant 56 http://www.girlsnotbrides.org/child-marriage/somalia/ 57 given the socio-cultural challenges where they felt http://amisom-au.org/so/2014/12/hiv-infections-on-the-rise-in- somalia/ 58 Ibid 53 UNDP 2012. Somalia Human Development Report 59http://www.so.undp.org/content/somalia/en/home/mdgoverview/ov 54 http://unyouthswap.org/thematic-areas/employment-and- erview/mdg6.html entrepreneurship [accessed on 14 Dec 2015] 60 IOM (2012), Youth Behavioural Survey Report: Somalia 55 Interviews with IPs and FGDs with youth in Hargeisa, Garowe and 61 See further in http://amisom-au.org/2014/12/hiv-infections-on-the- Mogadishu; and UNFPA staff.; Somalia National Youth Policy rise-in-somalia/

39 not to the extent that it should, as the focus is not especially on very young adolescent girls, in given emphasis despite the appreciation that the national development policies and programmes. population of Somalia is mainly youth which comes with different challenges. Various adolescent sexual The performance of the CP in the RHR component is reproductive health (ASRH) interventions are summarised in Annex 262. Implementation of the discussed further under effectiveness, as well as UNFPA RHR component was built from the complementary discussion under HIV prevention. previously developed country programme. Implementation approach was however different 4.2.2 Effectiveness since the previous one was implemented on a spontaneous manner due to the fragile context. It is EQ 3: To what extent did the interventions built around the UNFPA global approach which supported by UNFPA in the field of reproductive revolves around the life of a woman, on the health and rights contribute to (i) Improved access premise that no woman should die due to and utilisation of high quality maternal health and pregnancy-related causes. Its mandate is to ensure family planning services, including populations availability of service and is developed along three affected by humanitarian crisis (ii) Increased pillars: national and sub-national capacity to deliver • Supply, where it delivers services to the integrated sexual and reproductive health services target groups (iii) Increased priority on adolescents, especially on • Demand, where the programme works with very young adolescent girls, in national communities to create demand through development policies and programmes? information, availing the services through EQ 6: To what extent was the programme coverage interventions, including commodities; and (geographic; beneficiaries) reached as planned? • Policy, where the programme seeks to make the environment favourable for In assessing the effectiveness of the country access and utilisation of the services programme, the evaluation considered the through policy influence achievements made towards realizing the targeted results in the CPAP, the activities implemented and The Somalia UNFPA RHR component was mainly the extent to which they contributed to realisation implemented through the joint health and nutrition of the intended design objectives. The assessment programme (JHNP) across the country among other was guided by the evaluation question which projects implemented by UNFPA. There is high level 63 sought to establish the extent with which the of effectiveness of RHR component programming interventions supported by UNFPA in the field of in meeting the results of the targeted objectives by reproductive health and rights contribute to the time of the evaluation, despite the contextual improved access and utilisation of high quality influence on implementation processes and 64 maternal health and family planning services, design . The RHR component was implemented including populations affected by humanitarian crisis; increased national and sub-national capacity 62 The Performance Framework is summarised considering the baseline to deliver integrated sexual and reproductive health and the targets in the RHR component that were to be achieved by 2015; and the achievement at the time of the evaluation, and based on services; and increased priority on adolescents, the CPAP. 63 Key Informant Interviews 64 The Humanitarian access in Somalia still faces a lot of challenges. The coverage and quality of basic social services in Somalia is extremely

40 within the Somalia health sector strategic plan capacity of the health facilities to provide skilled (HSSP) which further led to the programme directly birth attendance through supporting recruitment, contributing to the country’s development on training and equipping of trained midwives. To health issues. ensure effectiveness in utilisation of the services of the midwives after graduation, a clear guideline was Community Midwifery developed, further facilitating accountability among In response to the low access to skilled birth the involved stakeholders. UNFPA also supported attendance by the Somali women, UNFPA establishment of nurses and midwifery associations supported implementation of various interventions in both Somaliland and Puntland67 to support on to increase availability and access to quality RH quality assurance for the midwifery training, service delivery to the target groups. This entailed including curriculum implementation, supervision contextualizing the responses based on the needs and recruitment of students for the midwifery of the targeted regions. Some of the key training. achievements through the programme are the elimination of delay two and three65 which were With the support of UNFPA, training of the initially issues towards accessing of maternal midwives has been a successful endeavour, with a services; improved skills of the health staff. total of 388 having graduated and a further 44868 being in class at the time of the evaluation. This will “Maternal mortality rates are going down, not surpass the target which was revised upwards to because we have magic, but because the women 400. However, there are gaps that have not been are coming on time, services are there, including addressed for effective delivery of maternal health caesarean-sections, and they are not charged.” services at the community level. Deployment of the —Key Informant in Somaliland graduate midwives from their targeted communities and their retention in those Training of midwives is an area that UNFPA communities is a bit of a challenge as some do not performed so well in eliminating obstacles to access go back or stay in their communities to offer the to maternal health care at the community level66, services for which they are trained for. This is especially targeting the hard-to-reach communities. attributed to lack of proper framework by the In collaboration with the Somalia MoH, professional government for their engagement to return to their associations, private health providers, communities communities where they are recruited from.69 As and training institutions, UNFPA strengthened the part of the agreement, the government is to ensure their deployment and they are to work on a voluntary basis but this is not actually happening to low, mainly due to the absence or low capacity of existing government structures. The healthcare system in Somalia remains weak, poorly a certain extent, as the graduate midwives retreat resourced and inequitably distributed. See more in https://docs.unocha.org/sites/dms/Somalia/Somaliapercent202015per to town to look for paying jobs in cities or NGOs cent20Humanitarianpercent20Needspercent20Overviewpercent20- that offer to pay them salaries, unlike the percent20FINAL.pdf volunteerism in their agreement of engagement 65 According to Thaddeus S and Maine D (1994), There are three types of delays contributing to maternal mortality, which are; delay in making decision to seek care; delay in arrival at a health facility; and delay in receiving adequate treatment, and names them as first, second, and 67 Somaliland Nursing and Midwifery Association, and Puntland Nursing third delay respectively – See and Midwifery Association in Somaliland and Puntland, respectively. http://www.ncbi.nlm.nih.gov/pubmed/8042057/ for further reading. 68 Interviews; Programme reports 66 Interviews with IPs in Garowe, Hargeisa and Mogadishu 69 Interviews and FGDs in Garowe and Hargeisa

41 with the MoH.70 In some instances, though, the supported training of nurses and doctors to provide midwives have been employed by NGOs in their basic emergency obstetric care and neonatal care locality, thereby delivering services within their (BEmONC) and comprehensive emergency obstetric targeted communities. There is also a gap in and neonatal care (CEmONC). UNFPA also ensuring consistent supervision of the midwives at supported the zonal authorities with ambulances in the community level and equipment of the facilities selected facilities to facilitate referrals from that they work in; functions that are supposed to be communities, including maternity waiting homes, to performed by the government. They also need to be health facilities for CEmONC, in case of consistently supplied with delivery kits to be able to emergencies. There are also instances that, through deliver in their assignments. UNFPA has however coordination, NGOs have bridged the gap in realised these gaps and is seeking to focus on facilitating referrals. These efforts yielded strengthening these with the government during commendable results given the RH situations at the the programme extension period. Even though beginning of the programme. For example, in UNFPA has contributed immensely to the skilled Puntland, there have been drastic changes in terms birth attendance in Somalia through training and of access to maternal health services over the equipment of midwives, there still remains a huge period of programme coverage, and the maternal gap of midwives within the country going by the mortality ratio (MMR) decline from 1044 to 732 per WHO minimum standards of 2.3 full time skilled 100,000 live births and increase skilled birth birth attendant per 1000 population71. attendance, and preventive services can be attributed to better access to the related services Strengthened Basic and Comprehensive including comprehensive emergency obstetric care Emergency Obstetric Care Service Delivery and and referral supported by UNFPA73. In addition, Fistula Repair UNFPA facilitated opening of six midwifery schools UNFPA effectively supported building the capacities in Puntland over the same period and currently of the health staff, in addition to equipping health operating; continuing to train midwives. facilities, to provide both basic and comprehensive emergency obstetric and neonatal care, and to To enhance effectiveness in the delivery of RH conduct obstetric fistula repair72. Due to the high services across Somalia, UNFPA supported the maternal deaths in Somalia, the programme government and continue to strengthen in establishment of Reproductive Health Unit under 70 Primary Health Care Department of the MoH across http://countryoffice.unfpa.org/somalia/2013/05/20/6908/voices_from _the_field_ldquo_i_am_ready_to_work_even_without_salary_or_com the Somali zones (Puntland, Somaliland and South pensation_in_order_to_save_mothers_and_babies_in_my_village_rdq Central); including equipping the unit with staff and uo/ 71 In 2015 the estimated population in Somalia was 12.8 million, which office equipment. This facilitated coordination and means that 29,440 skilled birth attendants are needed to cover the quality control through support supervision and whole population as per the WHO minimum standard (2.3 full time skilled birth attendants per 1,000 population). In accordance overseeing implementation of guidelines, including 74 with midwives providing 87 percent of reproductive health care, operationalizing them . Somalia needs 23,618 more midwives to be trained to be able to cover the population of 2015. At the current rate of training this can only be achieved in 24 years. This demonstrates the huge gap that still exists, and the importance of on-going and increasing investment.

72 Interviews with IPs, FGDs at Maternity Waiting Homes and 73 Interviews and programme reports Programme reports 74 Interviews and programme reports

42

“I suffered for 31 years for something that took a in Puntland, there is however a gap as the obstetric few hours to repair. I can now smile after the 31 and gynaecologist who was hired through UNFPA years of lost dignity. When I heard that there are support, in partnership with Comitato women providing the services is when I decided to Collaborazione Medica (CCM) for skills transfer in come. I could not share my situation with a male obstetric and gynaecological cases, including service provider.” surgeries does not perform obstetric fistula repair —Fistula repair beneficiary in Somaliland due to inadequate skills in the field. The staff has been instrumental in transfer of skills immensely Somalia has one of the highest obstetric fistula supporting in providing maternal health services at cases in the world75. In response, UNFPA made the Garowe General hospital. At the time of the concerted efforts to support both case evaluation, CCM was seeking funds to hire a fistula management and prevention of obstetric fistula surgeon to be based at the health facility. In among women. Even though this was not covered Mogadishu, Physicians Across Continents (PAC), the through the core resources, UNFPA mobilised funds only UNFPA partner providing CEmONC services in from Maternal Health Trust Fund, through its Global South and Central Somalia, is providing routine campaign to end Obstetric Fistula. The programme fistula repair, further providing relief to the affected trained medical doctors on fistula repairs. There mothers. This is unlike in the past where campaigns was also secondment of specialists in health would be conducted and cases registered and facilities, through UNFPA support, to repair cases. repairs scheduled. This would delay restoration of Initially in Puntland, UNFPA supported Galkayo dignity to the targeted women. In addition to Medical Foundation to offer fistula and this inadequate funds for fistula case management, this benefited affected women in Puntland, including outcome still faces challenges within the Somali those from the South Central zone. The programme community. further collaborated with an NGO which conducted fistula repair campaigns in Bossaso during the same Women with obstetric fistula usually feel shamed period of evaluation.76 In Somaliland, UNFPA or disgraced and this hinders them from collaborated with MoH and supported the National expressing themselves, including seeking for the Fistula Hospital in Borama, where the programme repair services, to some extent79, though not in covered operation costs and transport of the large scale. Further, there is inadequate patients to the hospital, in addition to conducting information, especially in the rural areas, on fistula campaigns[77][78]. Other repairs were handled availability of the services, inadequate equipment through partnering with NGOs, both local and and staff capacity to manage cases. Efforts have international to provide the services. however been made through the government to ensure that there is continued information of the UNFPA also supported in equipping health facilities communities to prevent cases of fistula. Since 2013, and trained doctors in UNFPA-supported facilities to UNFPA funded marking of International Day to End manage fistula cases on a routine basis. Currently, Obstetric Fistula, an event through which increased awareness on the fistula has been marked, with 75 https://www.fistulafoundation.org/countries-we-help/somalia/ illustrative testimonials of survivors who have 76 Interview and programme reports 77Programme report and Interviews with IPs in Hargeisa benefited from the services offered in health 78 http://countryoffice.unfpa.org/somalia/2012/01/20/4468/unfpa_conti nues_fistula_campaign/ 79 Interview and FGD in Hargeisa

43 facilities. Health facility staff and the youth have to manage better logistics data and stocks also participated in community outreaches to associated with reproductive health life-saving sensitise masses on the causes and availability of drugs and family planning commodities. The the fistula repair services at particular health governments, through respective MoH, have signed facilities. validation letters for the implementation of the newly revised LMIS Forms which will reinforce the The JHNP only covered nine regions (three per logistics systems across the zones and foster zone) while the other nine regions were not logistics data collection and reporting. It is covered (total pre-war regions are 18). This limited anticipated that this will effectively eliminate access to maternal health services by the left-out breakdown in supply chains. A total of 85 service regions. UNFPA however realised this and, in 2015, providers have been trained in supply chain in collaboration with the Ministry of Health, management at the national level and this was organised integrated outreach campaign done in collaboration with respective UN agencies programmes80 and plans to organise more to ensure and all the zones in Somalia. They were trained on that underserved areas are covered, within using the stock card, FP daily activity register and resource and security constraints. UNFPA also stock status report and order form; and donors mobilised funds from other sources to finance have agreed to fund production and supply of some existing gaps through the work plans, further of the forms, while the production of the summary partnering with NGOs to cover the gaps. activity forms will be funded by UNFPA82.

Reproductive Health Commodity Security Family Planning In compliance with Programme of Action adopted Somalia’s fertility rate is 6.6, one of the highest in at the 1994 ICPD in Cairo, to improve to RH services the world.83 Due to poor basic education and lack of in Somalia, UNFPA support the health facilities with sexuality education in schools, levels of information RH commodities, which are delivered freely to the on risks related to pregnancy and childbirth are low, facilities. UNFPA further supported establishment of and are mostly derived from traditional beliefs than warehouses for storing the commodities before from informed health staff. Awareness of beneficial they are supplied to the various health facilities. effects of preventive health services like birth Management of the warehouse is by the MoH and spacing is poor and many misconceptions prevail. In any requests for replenishment of facilities is done its mission to ensure that every pregnancy is through the ministry, further ensuring control and wanted, UNFPA, through the programme, contribution to the national ownership. embarked on supporting efforts to increase uptake of family planning services (referred to as birth- Further, UNFPA has endeavoured to improve spacing84 for clarity of purpose) by the Somali commodity security through strengthening the women of reproductive age. However, there still Logistics Management Information System (LMIS) exist gaps hindering FP service uptake85. for all the three zones, a case that was found Misconceptions still thrive among the majority of 81 weaker during the Mid-Term Review . This strengthening continues to enable the three zones 82 Interview with UNFPA Staff in Nairobi 83 http://data.worldbank.org/indicator/SP.DYN.TFRT.IN/ 84http://countryoffice.unfpa.org/somalia/2013/07/08/7266/religious_le 80 Interviews in Garowe and Outreach activity reports aders_in_puntland_raised_their_voice_in_support_of_birth_spacing_a 81 UNFPA Somalia 2nd Country Programme 2011-2015 (2013), Mid-Term nd_addressing_gbv_including_abandonment_of_fgm_c/ Review Report 85 Interviews in Hargeisa, Mogadishu and Garowe, and FGDs

44 the populations, especially at the community levels; the most popular contraceptive methods92. Culture, resistance from religious leaders, home deliveries religious beliefs and misconceptions play a critical also hamper access to the services86 due to role in influencing the uptake of family planning inadequate access to information on FP and contraceptives. Another issue that was cited as services87; inadequate participation of the male in affecting effectiveness of FP service uptake is male the process and inadequate staff capacity to involvement93. Currently, for any client to be given provide the services. any family planning method by any service provider she has to have consent from her husband, and UNFPA supports training of health care providers, when this is not provided, then the client will not be including midwives, doctors, and nurses; referred as served. However, UNFPA is currently working with core team, to provide FP services within Somalia. To policy makers and religious leaders to advocate for support operationalisation in the implementation of a policy that will allow women to freely consent for the services, the programme supported all reproductive health procedures without their development of guidelines, facilitation of support husbands’ involvement94. supervision, and equipment of health facilities to provide FP services. In collaboration with the policy It is worth noting that UNFPA currently is makers across the country, the National RH strategy conducting a lot of demand creation activities was revised to incorporate FP service provision. through the Integrated Community Reproductive Further, UNFPA trained trainers of trainers (ToTs) to Health project using Community’s own resource reach out to more health workers. Coordination of persons (CORPS) who are mainly men and include ToTs is ensured and motivated through incentives. religious leaders, village elders, chiefs, women Progress has been made in increasing uptake of the group leaders, youth group leaders and also service with a total of 54,441 clients served by community health workers. More efforts are 2015, recording an increase of 7,132 from 201488; however required for multi-stakeholder with expansion of the services, including use of involvement and commitment on the use of mass implants and IUCDs; increased demand for the media for promotion of FP services; religious and services among the women of reproductive age; community leaders to make reference in their daily and increased number of health facilities religious teachings and to encourage men's administering more than one method of FP[89][90]. involvement and support for women in the use of Currently, there is preference for injections and the services to increase uptake and thereby one-off methods, particularly implants as opposed increase quality of life of the Somali women. to the oral ones91, although the FP results from UNFPA show that oral contraceptives still remain UNFPA has helped in the creation of FP taskforce within the RH working group, guided by the global UNFPA Family Planning 2020 taskforce. Through 86 Access to maternal health services is low with 44 and 38 per cent of integrated community RH outreach project, births in Somaliland and Puntland being attended by skilled birth attendants. See more in community own resource persons (CORPs) have http://www.unicef.org/somalia/health_53.html been trained with the aim of ‘taking RH services to 87http://www.panafrican-med- journal.com/content/article/20/10/full/#.Vu0bzuJ97IU the people’. 88 Somalia COAR 2015 and Interviews 89 http://countryoffice.unfpa.org/somalia/drive/UNFPA_in_Somalia_- _From_Relief_to_Development.pdf 92 UNFPA Staff 90 Somalia COAR 2015 93 Ibid 91 Interviews with MoH staff and FGDs in Hargeisa 94 Ibid

45

Somalia97. This component of the programme was To address resistance emanating from religious implemented based on the needs as defined beliefs, UNFPA facilitated a visit to Cairo by 30 through zoning of the country according to security Islamic leaders in 2015 to sensitise and help them levels according to UN security department. With understand the Islamic perspective of FP. It is this, both South-Central zone and Puntland were currently acceptable to talk about FP, contrary to an targeted, with Somaliland being excluded at the initially held position before sensitisation activities initial stages of the programme, mainly due to were conducted across Somalia95. Women, however limited financial support, much as needs to respond cannot, in most cases, talk about FP without the were there. Somaliland was however included in participation of men, a challenge that needs to be 2015 during deteriorating situation as a result of addressed. FP supplies to the health facilities have conflict in Yemen which led to return of Somalis been intensified through training of health staff on living there and Yemeni refugees. RH commodity security. To ensure quality control, the roll-out of FP services has been done according Across the target regions in Somalia, UNFPA to assessed level of appropriateness, where supported establishment of maternity waiting implants are only administered at the national homes (MWHs) – model facilities designed and health facility levels (Garowe, Hargeisa and supported by UNFPA to ensure improved access to Mogadishu for Puntland, Somaliland and SCZ and provision of basic and life-saving maternal purposes), injections at district health facility levels health services to people in displacement. Through and orals at the primary level. The process is strict UNFPA CP support, these homes are supported on and ensures that supplies are only distributed delivery kits and trained midwives who conduct depending on the level and qualification of the deliveries. They were also supported with staff. A five to seven days mentorship trainings have equipment, which included fixtures and also been employed to increase the skills of the contributing to paying salaries of staff in the staff on administration of FP services96. Even though facilities; and carry out all the requisite services to this was a strong deliverable, there is currently no the mothers and their children. Predominantly strategic plan to guide provision of RH commodity located in displacement settlements, these facilities services in Somalia. offer essential care to expectant mothers at all stages of pregnancy, providing a range of health Humanitarian Assistance in Somalia services. To ensure effective care and observation Although the general context of implementation of skilled birth attendants, expectant mothers are within Somalia is defined within the tenets of invited to stay in the waiting homes in their last humanitarian response, UNFPA Somalia made month of pregnancy. The MWHs in Somalia IDP deliberate efforts to specifically address gaps in settlements, run by local NGOs, with support from emergency preparedness and response to child UNFPA and the MoH provide timely referrals of birth complications at the IDP settlements which complicated cases to hospitals while non- are particularly vulnerable, exacerbated by the complicated cases are handled at the waiting conditions they are living in. The programme also homes. Scale-up of the MWHs concept was targeted people in hard to reach rural areas within informed by the findings and recommendations of an evaluation commissioned by UNFPA on the

95 Interviews with IPs and UNFPA staff 96 Interviews with UNFPA staff and reports 97 Interviews with MoH and UNFPA staff

46 same, which elicited evidence on the relevance and The humanitarian assistance aspects of the CP were effectiveness in increasing access to skilled birth effectively covered through the MWHs103. attendance by expectant mothers in emergency set- Supervision of these homes by the ministry of ups.98 As at the time of evaluation, UNFPA health was well coordinated among stakeholders supported establishment and operationalisation of within Somalia, including reporting on service over 36 MWHs99. The MWHs also provide health deliveries. To further ensure contribution to the consultations for the IDPs and the host national performance, monthly performance communities, thereby filling the gap in health meetings were held and supported by UNFPA to be service access and delivery to the deserving able to assess the level of performance and quality populace. control. Implementing partners attended these meetings and in addition, submitted monthly The MWHs have been successful in reducing cases service reports to the government. The level of of maternal deaths in Somalia because of the effective coordination and supervision was reported services that are provided. This information was to be stronger in Puntland, while in South-Central also corroborate by feedback provided by a region the coordination needs to be strengthened religious leader stating a reduction in the number of further, especially on selection of partners where it funerals he administered after an MWH was was reported that UNFPA engages the partners established in his settlement100. Further, the directly104. facilities filled a critical gap in the health system of the country where health facilities available are not Through the humanitarian assistance programme, able to accommodate the needs of all women. As at the CO contributed to the emergency preparedness the time of evaluation, a total of 16,724101 pregnant plan strategy through the practice of contingency women delivered and over 1,300 pregnancy and planning to respond in emergency situations as they childbirth complications were identified and occur, ensuring minimum preparedness. This referred for further management and care. Through commitment ensures that gaps in emergency are the MWHs, the CP was able to scale up quality RH addressed through provision of minimum initial services among expectant women and girls as well service package for lifesaving interventions for as providing outreach services in the target IDP those affected by disasters and emergencies. The settlements, increasing chances of survival of the programme supported the Somali returnees from mothers. Apart from serving as emergency delivery Yemen and Yemeni refugees. It also effectively centres, the concept of MWHs has also facilitated responded during the 2013 cyclone in Eyle in access to other RH services like the family planning Puntland as those affected were supported with by the populations in displacement102. MISP for emergency105.

Support for ASRH, Youth and HIV Prevention Adolescents and youth constitute more than 70 percent of the Somali population106 and the 98 UNFPA (2014) An Evaluation Report of Maternity Waiting Homes Experiences in South Central Somalia. decision to target them is highly lauded by the 99 UNFPA 2015 Annual Report - Somalia 100 See http://www.unfpa.org/news/safe-haven-pregnant-women- 103 Interviews with IPs and UNFPA Staff somalia [accessed on 10 December 2015] 104 Interview with MoH staff in Mogadishu 101 Ibid 105 Interview with UNFPA and IPs 102 Interviews with MoH, UNFPA staff, FGDs at MWHs and MWH 106 http://www.unfpa.org/news/young-leaders-make-case-peace- Evaluation report somalia

47 respondents. Fulfilling the strategies to realise the skills after which they were supported with business CP’s second output, UNFPA implemented a number start-up kits worth $700108. of activities aimed at meaningfully involving the youth on issues affecting them, including building For the first time in Somalia, a Youth Forum was their capacities to increase their level of established through the support of UNFPA aimed at resourcefulness in Somalia. The CP involved the facilitating meaningfully role of the youth in key youth strategically in ensuring that they were aspects of the Somali society109. This forum aimed effectively useful agents in the socio-economic at bringing together the line youth ministries to change process. This is however broad based within ensure coordination among themselves. The Youth different CP component and integrated in the RH Forum is chaired by the Ministry of Youth and outcome. Sports across the Somalia zonal authorities and co- chaired by UNFPA further showing the interest that During the period of review, UNFPA supported the UNFPA has put on coordinating the interests of the Somali zonal authorities (Somaliland and Puntland) youth. In Puntland for example, UNFPA supported partially in the development of Youth Policy and is establishment of Puntland Youth Association currently supporting the FGS in developing the Network (PYAN), bringing together youth umbrella same; set up youth centres; and provided bodies from all the Puntland regions, to coordinate scholarship for vulnerable girls for school-based youth issues in the zone. The UNFPA’s Y-PEER education targeting entrepreneurship. UNFPA also Network was also actively engaged by the supported strengthening of life-skills and HIV government in meaningful roles, including national prevention among the youth using different institutions focusing on youth issues and involving techniques. Through the youth policy development, the youth in peace-building as stipulated in the other UN agencies and INGOs have been able to Compact New Deal110. This success brought to the contractively engage (in a guided framework) in fore the need for youth-interest groups like NGOs, addressing the youth issues. The youth centres also State networks and private sector to work together served as multi-purpose centres, including meeting and build state networks. points for youth groups107. Towards empowerment of the youth, UNFPA, in Youth activities were integrated in the whole collaboration of the governments, recruited and programme intervention. To start with, the RH trained mostly youth who participated in the PESS programme in the quest to increase human activities in data collection, entry and analysis. In resource for skilled birth attendance, recruited addition to building their technical capacity, they young women aged between 19 and 20 years old. were also retained as employees by the After graduation, some of them land in paid jobs, in government, while at the same time others were addition to being in an empowered socially through getting employment elsewhere because of the skills the role. Though not specifically deliberate, the gained during the PESS process. MoH staff in the RH Unit (supported by UNFPA) are mostly young people. UNFPA also sponsored UNFPA actively involved the youth on campaign vulnerable adolescent girls to pursue vocational activities targeting awareness raising on GBV,

108 Interviews with IPs and UNFPA staff 109 Ibid 107 Interviews with IPs and UNFPA staff and FGDs with youth 110 Interviews with Y-Peer Network members and UNFPA staff

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FGM/C, HIV&AIDS and Adolescent Sexual cited as contributing factors114. HIV prevention Reproductive Health (ASRH) issues. They have been activity like condom distribution is regarded to be trained and mobilised as agents of change using promoting promiscuity among the populace. In fact, peer-to-peer education in the community focusing condom distribution is banned in Somaliland115. mainly on the raising awareness on the harmful Investment in HIV and AIDS activities in Somalia is traditional practices. They used mass media, radio lower, even with statistics showing that HIV and TV spots, theatre performances, sports and prevalence is on the rise116. There is also inadequate social media to increase advocacy activities on the data on HIV and AIDS, which limits the level of above themes. In addition to using peer-to-peer understanding on the possible effect on the approaches through school clubs, UNFPA funded pandemic.117 implementation of sports tournaments across Somalia where key messages were shared and Y-Peer networks effectively facilitated118 sessions youth participated actively. These were including training, debates and peer education disseminated through the mainstream media. among the youth. During debates, they have invited religious leaders, elders and experienced youth to UNFPA implemented HIV and AIDS prevention clarify issues of discussion, especially to demystify activities mainly targeting and involving the Somali socio-cultural issues affecting the youth. In addition, youth. The HIV and AIDS activities implemented by this was also to help facilitate listening to the youth UNFPA broadly included youth peer education, issues by the opinion leaders to target change in conducting HIV and AIDS workshops with religious perception towards the youth. Youth were leaders targeting awareness raising on stigma incorporated in the constitution-making process in reduction, and supporting development of social Somalia, something that could not happen before behaviour change strategic plan. The efforts have they were involved in the CP interventions. Efforts contributed to high level of awareness among the were also made to ensure that the RH services were youth as confirmed by the respondents111. accessed by the youth, with staff being trained by Involvement of the religious leaders in advocacy UNFPA to further understand the youth. However, activities have also borne fruits as stigma toward the youth interviewed found it is better to go for people living with HIV and AIDS (PLWHA) has also integrated RH services due to stigma associated reduced112 as it is currently acceptable to relate to with RH-specific services. Young people face them, unlike before when it was not possible to be challenges in accessing services as most of the near one. issues are culturally sensitive. Young, unmarried women face challenges accessing to RH services Prevention services like voluntary counselling and where they will be asked to bring their husbands as testing (VCT) have been integrated into the health RH services like family planning are meant for those facilities for access and uptake is increasing113. who are married in the cultural and religious These gains have, however, been registered in the urban centres and there is need to target the rural areas. Cultural and religious challenges are also 114 Ibid 115 Interview with Youth 116 http://amisom-au.org/so/2014/12/hiv-infections-on-the- rise-in-somalia/ 111 117 Interview with SoLNAC in Hargeisa and FGDs with Youth http://www.so.undp.org/content/somalia/en/home/mdgoverview/o 112 Ibid verview/mdg6.html 118 113 Interviews with IPs, UNFPA and FGDs with Youth Interview with the Youth and UNFPA Staff

49 context119. Community advocacy activities can also an impediment in provision of technical support and not be effectively addressed by the young people, services123. There is always coordination and especially on HIV and AIDS as it involves sexual mechanisms to consult, including with field staff. behaviours, which is not only a taboo to talk about The maternity waiting homes were also run in a in public, but being young even makes it more more cost-effective manner in comparison to the demeaning120. UNFPA Somalia however continues CEmONC centres while providing maternal health to lobby with government authorities and religious services especially in the humanitarian set-up. leaders through various strategies to accept and has further undertaken translation of family planning Supporting establishment of the RH unit facilitated book in the legacy of Islam, with the hope of efficiency in monitoring and quality assurance boosting ASRH among the young people. Even towards delivery of RH services in various though integration of youth activities yielded government and other health facilities. The unit also notable results, the budget allocation for the acted as a launch-pad or custodian for the manuals, activities in the current CP were cited to be protocols, records and guidelines for RH services inadequate given that the youth account for 70 enabling coordination and effective provision of the percent of the country’s population121. service. Measuring performance of the government systems on RH service delivery was also possible 4.2.3 Efficiency through this unit. It was however reported that this unit did not have enough resources to go about its EQ 7: Was the programme implementation functions as expected, more-so on supervision and approach (funds, expertise, time, administrative coordination of the work of the midwives. Even costs, etc.) the most efficient way of achieving though UNFPA invested a lot in building the results? capacity of the government staff to manage delivery of RH services, it was reported that the capacity of The 2nd UNFPA Country’s RHR component was the staff is still inadequate for effective delivery of 124 reported to be very efficient in the interventions it their functions . supported. To begin with, UNFPA has technical staff qualified and provided appropriate guidance both in The national approach to delivery of services design and delivery of services in the key areas of utilised already existing government structures RH, including humanitarian assistance. Across the enabling provision of services within a properly country, the staff had competent and relevant staff constituted structure making the operation costs in all the programme component areas and from less with more focus in delivery of services. respondents’ feedback122, they supported delivery Disbursement of funds was mentioned to take time, of services in a professional manner, including especially after approval of annual work plans for supervision and design of manuals and guidelines. implementation affecting implementation Availability of the technical specialists based in processes. Given that UNFPA had signed working Nairobi and supporting during field visits was cited MoUs with the government, when delays were as a challenge but it was not so pronounced to be imminent, the government would fund activities with funds allocated for other functions (that are

119 Interview and FGDs with youth 120 Interview and FGDs with the youth and UNFPA COAR 2015. 121 Interview with UNFPA Staff and Youth IPs 123 Interviews with IPs in Mogadishu 122 Interviews with IPs 124 Interview with MoH staff

50 not immediate) from other sources then replenish through partnership with the established training when programme money is wired125. Some factors schools enable efficiency in churning out graduates were cited to be responsible for delays in funding as at a lower operation costs. bureaucracy within the UN system, late planning of activities, compliance issues by the IPs126. UNFPA supported capacity strengthening endeavours including supporting different technical UNFPA programmes were implemented through positions in offices in the line ministries to facilitate annual work plans, where implementing partners capacity development in coordination and delivery would be required to plan their activities well in of the RH services. The supported positions were advance, discussed and approved before funds are crucial for the ministries as they also enabled on- disbursed making them support only interventions the-job training of other staff in the ministries. This that had been agreed upon as efficient. In addition, contributed immensely to enhancing and speeding there are mechanisms in place to monitor up of service provision to the targeted beneficiaries, implementation of activities through financial further enhancing efficiency and effectiveness in reports that are also based on AWPs, enabling delivery of results. efficient management of funds. This also ensures compliance with the financial management On efficiency with regard to timely delivery of procedures of the organisation. services to the affected, UNFPA’s model of MWH facilitated access to skilled and quality maternity Implementation of the programme interventions care services by pregnant women in the IDP camps. through a joint programmes enhanced synergy in Further, during the influx of IDPs, Somali returnees delivery of services to the targeted areas. JHNP and refugees from Yemen, UNFPA strategically helped the programme in surpassing the targets. responded by supporting medical teams in This enables division of labour and shared settlements to provide emergency maternal health responsibility with clarity of roles. Partnership also and services to SGBV survivors, with some being made it possible for target population to access referred to the MWHs available. Notable is that, all services without UNFPA having to spend on staff these happened outside the UNFPA AWP with the and infrastructure to implement. For example, the partners but were effectively delivered within MWH were run with NGOs which had funding from budget constraints. elsewhere and not just from UNFPA, making its contribution complementary; PAC also had a lot of 4.2.4 Sustainability contribution to make in its programmes, especially on treatment of obstetric fistula on a regular basis, EQ 8: To what extent are the development gains as opposed to waiting for outreaches; and other made under the UNFPA supported interventions in organisations running programmes in various Somalia sustainable in terms of continuity in service localities within Somalia had shared costs as they provisions and partnerships integration of CP did not just depend on UNFPA for operation and activities into the regular country and counterparts’ logistics costs like SAMA transported commodities programming? from Mogadishu to Baidoa. Training of midwives

125 Interviews with MoH Staff and UNFPA Staff 126 Interviews with IPs

51

It is evident that UNFPA made considerations to development, which should strengthen RHR ensure implementation of interventions continued orientation and capacity development, and beyond the programme period. From the design, promote integration in the long term in Somalia. UNFPA recognised the need to ensure that the UNFPA support to build health system capacity programmes be country-led, through working with through training, facility construction, rehabilitation relevant line ministries. It was also evident when and equipment; procurement of commodities, and implementations were embedded on policy community demand generation may also have frameworks. Community participation was also some lasting impact. Maintenance of the promoted, especially in supporting recruitment of equipment could also be funded by the MoH the midwifery trainee-candidates. Ownership by the through the cost-sharing modality. Currently, community was also manifested in the partnership UNFPA provides RH commodities and this poses a that existed between communities, MoH and sustainability issue. Another issue is about the UNFPA to support in referrals during emergency South-Central region service providers most of deliveries. In Puntland, for example, the community which are privately owned affecting sustainability in contributed a plot of land to construct maternal and access to the maternal health services, especially on neonatal health centre next to the Garowe General implementation of guidelines and standards128. Hospital, in addition to flattening and levelling the ground and further constructing the walls. There is mixed feedback on the extent to which the interventions will remain to advance the targeted UNFPA fostered partnerships among the health outcomes in the long term as they are development partners within Somalia increase dependent on a number of factors. Strengthening of synergy in service delivery and thereby enhancing the health system capacity through training of sustainability though capacity strengthening and health staff to provide lasting results depend on a coordination among partners. UNFPA had a unique number of factors spanning; the quality of training; collaboration between the health and environment the extent to which trained health providers utilise sector through a tripartite arrangement and their new skills and knowledge, and how this is coordination; where UNFPA, UNDP and MoH in cascaded to the other staff after training, especially Puntland in securing solar power stations in Garowe for the ToTs and even the selected few who get and Galkayo. These stations will provide trained in different areas. Another critical factor uninterrupted power supply, solving the issue of within Somalia is also on the ability of the frequent power cuts, in addition to being cost- government to retain the trained staff in order to effective by providing power with no costs incurred, utilise their skills in provision of services to the unlike before when the facilities paid US$ 6,000 and general. US$ 15,000 per month respectively for Garowe General Hospital and Galkayo Hospital.127 Increasing the capacity of the government to offer skilled birth attendance in the hard-to-reach During the period of evaluation, UNFPA elaborately populations through training and deployment of the supported policy, strategy, guideline and training midwives still faces a major challenge and this threatens their retention by the government in 127 See further their places of deployment. Their recruitment for http://countryoffice.unfpa.org/somalia/2015/01/29/11339/a_solar_po wered_maternal_and_neonatal_health_centre_for_somalia/ [Accessed 128 on 10/12/2015] UNFPA Staff

52 training is highly participatory with the local and non-governmental organisations, and the most- authorities; however, there are reported cases at-risk youth. The targets in the RHR component are where they do not go back to the rural areas to likely to be achieved, with some already surpassed offer the intended service. Currently, there is no during the period of implementation (Refer to formal framework to keep the trained midwives at Annex 2). However, service delivery and awareness their designated places of work after training. raising in the rural areas are still inadequate. Cultural challenges have also affected access to Coordination of quality health service delivery in family planning services and RH services by the Somalia has been improved over time through youth. Youth targeting was limited at the beginning facilitated support supervision and establishment of of the programme but later scaled up during structures within facilities and ministries further alignment with the UNFPA strategic plan. Further, assuring sustainability. Technical capacity has also even though UNFPA made a significant contribution been enhanced in the ministries, which UNFPA in improving skilled birth attendance through supporting salaries of various staff and financing training and equipping of midwives, there still exists periodic coordination meetings among a huge gap in the discipline given the WHO stakeholders. The capacity of the government to minimum standards of 2.3 skilled birth attendants mobilise funds to fill the existing gaps in the per 1000 population and considering the 2015 data reproductive health needs is still low. on 12.8 million as the population of Somalia.

Summary of Findings The programme component was found to be Overall, the RHR component of the programme was efficient in delivery of the RHR services throughout well designed and responded to the needs of the the period of evaluation. Availability of technical Somali population. The interventions in the CPAP staff, established RH unit to coordinate activities addressed development needs within the country and guide quality provision of RH services; and and were consistent with the government priorities working through the government units made in their areas of focus. It was also well aligned to facilitated efficient provision of the service within contribute to the UNFPA Strategic plan and MDG 5, the component. Security constraints however where the MMR reduced from 1044 to 732 per affected field monitoring of activities by the 100,000 births during the period of evaluation. Joint technical international staff, including those based programmes enhanced programme coverage but in Nairobi. Sustainability is embedded in the design this was limited to only three regions per zone, with and implementation processes. The programme some needy rural areas not being reached. component built the capacity of government structures, developed quality protocols, The programme has contributed to improved access establishment and equipped health facilities and to reproductive health services through supporting promoted ownership of the project intervention, enhanced reproductive health-care service delivery assuring sustainability. However, Somalia is still processes, including midwifery training and faced with low capacity, cultural inhibitors and establishing midwifery training institutions, conflicts which take a toll on sustainability. Further, supporting increased family planning service uptake in the South-Central Somalia, the maternal health and increasing RH commodity security, obstetric provision is mostly by privately owned health fistula prevention and management, strengthened facilities which hinders sustainability, especially on capacities of zonal authorities, community-based implementation of standards and guidelines.

53

4.3 Population and Development (TSU); and three zonal taskforces created for the PESS at the Planning Ministries of the Federal Government of Somalia in Mogadishu, in Puntland 4.3.1 Relevance and in Somaliland.131

EQ 1: To what extent were the programme From the targeted design, the first output strategies interventions consistent with the needs of the were; supporting the establishment, strengthening beneficiary populations and to what extent was it and periodic updating of an integrated population aligned with government priorities as well as with database on selected issues at zonal and sub-zonal policies and strategies of UNFPA? levels; developing a framework and support for EQ 2: How well was the CPAP aligned with the ICPD evidence-informed advocacy to improve maternal actions and MDGs as well as with the UNFPA health; supporting the collection, analysis and use Strategic Plans? of data on maternal mortality and morbidity;

strengthening the capacity to monitor and report

on International Conference on Population and UNFPA Somalia’s P&D component has had a far- Development (ICPD) and Millennium Development reaching relevance to the planning and policy Goal targets; and building the capacity of formulation for the development outcomes within government and other partners to integrate the country. The component was developed to maternal mortality and morbidity into emergency address the inadequate and weak capacity of preparedness and response efforts. On the other government staff to develop statistical systems, hand, those for the second output were; improving collect, process, archive and analyse data; the capacity of selected sectoral ministries and unavailability of crucial statistical data such as partner organisations in data collection and population size and distribution to support planning analysis; providing technical support to improve the and policy formulation; limited statistical planning and monitoring of humanitarian assistance equipment and unreliable channels for data and recovery efforts; and operationalising inter- dissemination; unavailability of policy framework to linkages between humanitarian, recovery and guide the production and dissemination of development assistance. These make the statistical information129. programme component highly relevant as it centred

on addressing the development gaps within the The most glaring product from this component country132. during the period of evaluation is the Population

Estimation Survey of Somalia (PESS)130. Its objective The demographic data in Somalia has been was to provide evidence based, technically sound, incomplete and scanty for close to four decades. reliable, estimates of population of Somalia Attempts have been made to collect and compile including IDPs and nomads. This was a collaborative data on key areas such as number of settlements, effort, under the leadership of UNFPA, of UN population, household income and expenditure, agencies - UNICEF, UNDP, WHO, WFP, UNHCR and prices of essential commodities, agriculture, FAO; operating under a Technical Support Unit

129 Somalia CPD and CPAP 131 For further information on the role of each member partner, refer to 130 For further reading about the report, http://countryoffice.unfpa.org/somalia/2013/03/12/6401/population_ http://countryoffice.unfpa.org/somalia/drive/Population-Estimation- pess/ [Accessed on 02/01/2016] Survey-of-Somalia-PESS-2013-2014.pdf [Accessed on 12/12/2015] 132 CP Document and Interviews

54 education and health in areas that could be Somalia to deliberate on how to go about the PESS, reached. The first census carried out in 1975 was demonstrated the commitment that it had in not published, and only an analytical report based addressing the local needs of the people of on the census results was brought out in 1984133. A Somalia136. All the decisions made, processes taken national demographic survey was carried out in in defining the PESS process was as a result of 1980-81, but the data were not processed, barring a consultation among the various authorities. UNFPA, few hand-tabulations134. Another census was through a High-level task force to oversee carried out in 1985-86, and was contested due to implementation of the process was composed of doubts about its accuracy, and was therefore not each zone stakeholders. Each of the three published. Several international NGOs engaged in taskforces were staffed by a Survey Director and humanitarian activities in Somalia collect data Deputy Survey Director and funded by UNFPA. This pertaining to the areas of their interest, particularly ensured that work plans executed addressed the on food security, WASH, education, health and needs of the three zonal authorities, with their other social aspects, thereby limiting the level of contribution. It is notable that the decision to information on the demographic, social and conduct PESS came as a request from the economic characteristics to inform decision-making. authorities during a meeting where the three The Population Estimation Survey of Somalia (PESS), Somalia authorities were involved. conducted under the leadership and support of UNFPA in collaboration with UN agencies and other The collapse of the government led to wiping away partners, provides a remedy to the data needs on of existing statistical infrastructure and systems and the people of Somalia, based on facts135. systems crumbled, implementation of PESS provided an opportunity for bridging the gap in Given the low capacity of the Somalia governments enhancing statistical capacities in Somalia. It in resource mobilisation and even availability, provides soundly accurate, reliable, credible and UNFPA played a leading role in mobilising and accepted indicators for more specific follow-up managing financial resources for the conduct of surveys; further enhancing the capacity of the PESS. UNFPA was actively involved in guiding, Somalis to be able to have a framework for monitoring and coordinating the activities of the conducting further data collection activities137. PESS exercise including mapping and mitigation of Capacity strengthening interventions were problems that arose during the process. The conducted in close collaboration and partnerships support was also in logistics and operational. with the government staff, including Somali UNFPA also supported the post-estimation survey universities, ensuring that the capacities of the to train selected staff and various stakeholders Somalis was enhanced and technically sound to including university staff on data analysis and report implement similar processes138. writing. In preparation for the planned census, the results of The decision by UNFPA to bring on board the PESS provide a basis for baseline information. It participants drawn from the various parts of further provides a platform for putting systems in place to facilitate nation-wide data collection

133 See http://www.somali-jna.org/downloads/ACFA9.pdf 134 Ibid 136 Interviews with UNFPA and Planning Ministries’ Staff 135 Interviews with Planning Ministry and UNFPA Staff; and Programme 137 Ibid Report 138 Interviews and programme reports

55 processes. With the challenges of access due to where to get them using water-points. Soaring insecurity and financial constraints within Somalia, temperatures in places like Bossaso and Berbera PESS provided an opportunity for bridging the gap port towns were recognized and planning made to in providing institutional capacity and specialised suit the circumstances, including scheduling at a skills in preparation for the planned census exercise; favourable time142. and within a scale that required a more manageable Once the PESS analytical reports are completed and cost than census139. validated, they will be available to be used in informing the national and sub-national development plans. This will also make it possible to The evaluation also established that the programme better monitor progress on health indicators, was aligned to the UNFPA Strategic Plan 2014 – especially maternal health across the national and 2017, in compliance to the ICPD. In the aligned sub-national levels. document from the country programme, the outputs 5 and 6 directly contribute to SP outputs 12 4.3.2 Effectiveness and 15 for the achievement of outcome 4, as contained in the integrated results framework EQ 4: To what extent have the interventions 140 (IRF) . The targeted interventions implemented supported by UNFPA in the field of population and accordingly and are well defined and measured development contributed to (i) increased through capturing of performance indicators, availability and use of data on emerging population clearly defined. The CP component’s outcome 3 also issues at national and sub-national levels (ii) contributed to the achievement of the UNSAS Strengthened national and sub-national capacity for Outcome 3 as presented in the intervention logic production and dissemination of quality (Figure 3.1). Further, the programme interventions disaggregated data on population and development directly contributed to the priority areas in the issues. Compact Deal’s IRF. EQ 6: To what extent was the programme coverage (geographic; beneficiaries) reached as planned? The relevance of the P&D component was evidenced when it strategically targeted mostly The UNFPA Somalia CP’s P&D component was young people in training them as enumerators initially designed to operate as a programme on its 141 during the PESS process . In addition to building own, but was later integrated across the country their capacity, possibility of continuity is ensured programme. The component is implemented in through the programme and employability of the partnership with the ministries of National Planning participants. and Development in Somaliland, Planning and International Cooperation (MoPIC) in Puntland, and The P&D component, in design of the methodology department of Planning in the Ministry of Finance of PESS took into consideration the local context to and National Planning for The Federal Republic of ensure that all the aspects of interest were Somalia in South-Central Zone. Through the captured. In recognizing that part of the population component, UNFPA provides both technical and is nomadic, they were targeted, including when and financial support to facilitate the operationalisation 143 of population and development processes . The 139 Interviews with Planning Ministry Staff across Somalia 140 UNFPA Somalia document for Alignment to the Strategic Plan 2014 – 2017 and Interviews with UNFPA Staff 142 Interviews and PESS Report 141 Interview with UNFPA staff and FGDs with the enumerators 143 Interviews and CPD

56 implementation process of the population scanty and unreliable and did not capture accurate estimation survey of Somalia (PESS) involved high details about Somalis, including age, gender, and level of consultations among various stakeholders other characteristics such as education, emanating from the zonal governments of Somalia, employment, as well as information on birth and UN agencies and other development partners, death. The survey also estimated the regional data including donors. The processes of implementation which enabled effective planning by the of activities also entailed involvement of a number government. The results were accepted across the of stakeholders drawn from the government. The Somalia zones on a technical basis. However local performance of the CP in the Population and politics played in the way the results were Development component is summarised in Annex disseminated by UNFPA. Puntland initially 2144. contested the results based on the boundaries covered between them and Somaliland (Sanaag The use of pre-war regions and boundaries to region has always been contested between the conduct PESS facilitated successful engagement of two). The methodology used was however not in the three Somalia authorities145. The extent that the contention. UNFPA further consulted the high level various zonal authorities were involved in team to sensitise the people on the elements mobilisation of their citizens enabled their buy-in to involved. Somaliland disowned the results, based on the process. This was done through the high level political reasons because of the decision taken to task force teams that were formed in each zone. release the results in Mogadishu, as its government This process even led to acceptance of the results felt that it is no longer part of Somalia. This was also by all the zonal governments. From the results and addressed by UNFPA and a way forward was arrived achievements through the component, it is evident at to launch the results in all the zones149. Ideally, it that UNFPA effectively played its roles of would have been more acceptable for the mobilisation of resource, including coordination and governments if the results had been launched provision of technical assistance in the processes146. simultaneously across the three zones. UNFPA The collaboration and partnership between UNFPA recognized this shortcoming and also took it as a and Somali authorities and technical experts, learning point for future launching of the remaining communities and other UN entities, donors and PESS (analysed) results and the planned census partners ensured the survey was conducted in line data150. The initial contestation of the results of with international standards in all 18 pre-war PESS by the Puntland government was a regions147. manifestation of the value that they had in the information. The results of the PESS enabled the Federal government to develop a two-year development The methodology used to produce the PESS was plan based on the data, which could not happen lauded as the most reliable with the availability of before148. Initially, the data that was there was so technical team to support on quality issues151. There were also checks and balances in place to ensure 144 The Performance Framework is summarised considering the baseline that processes were within standards. The level of and the targets in Population and Development component that were to be achieved by 2015; and the achievement at the time of the evaluation, and based on the CPAP 145 Interview with Planning Ministry and UNFPA Staff 149 Interview with Planning Ministry and UNFPA Staff; and UN 146 Ibid Coordination staff 147 Interviews with UNFPA Staff and Programme Report 150 Interview with UNFPA Staff 148 Interviews with Planning ministry Staff in Mogadishu 151 Ibid

57 consultation from national level to the community Development Bank to build the capacities of the level ensured that it was part of the Somalis. staff involved. Piloting was also done in selected areas, with verification techniques involving the authorities. UNFPA trained over 4,500 enumerators who participated in the PESS process, most of whom “This is the first time the Somalis are taking part in were youth from universities154. The beneficiaries such an exercise of such magnitude. Those previously confirmed that they had the capacity to implement conducted have been done by experts who are a similar process155. To ensure that there was outsiders but they have also not captured this level systematic transfer of statistical knowledge, training of detail that PESS covered.” of trainers (ToTs) was conducted. The ToTs were – Government respondent in reference to the level of those from the regional government authorities detail in PESS and its acceptance by the authorities who in turn trained those within their jurisdiction either as supervisors or enumerators. At the time of With the collapse of statistical institutions and the evaluation, it was confirmed that the ToTs had systems for data collection, UNFPA enabled trained staff from other ministries especially on capacity development and establishment of data collection, analysis and utilisation of the structures, including frameworks that could be used information156. In Puntland a statistical forum was as frameworks for conducting data collection. The developed from users who were from line ministries sample frame that was used for PESS can be used and this is supportive on the use of statistical data 152 for large scale surveys, including evaluations . and information, informing planning and decision- Country Programme contributed to addressing making157. Again, in Puntland, the MOPIC data entry these capacity challenges by building capacity in personnel trained by PESS project provided support population and development integration, and to producing the Multi-Cluster/Sector Initial Rapid provided support in population surveys and general Assessment Report (MIRA) in the aftermath of the research. tropical cyclone in Puntland in 2013, demonstrating that national staff trained through the PESS project In order to address issues of capacity on population can also support other types of surveys and and development, UNFPA embedded capacity assessments158. strengthening in PESS and ensured that the staff involved were from relevant ministries. UNFPA Partnership and involvement of technical experts supported a statistics working group coordinated by enabled the success of the PESS process159. Staff the Director-Generals from the three partner from UNFAO, Norway Statistics and UN agencies ministries from each zone. This was not only limited seconded expert staff to participate and lead the to the planning ministries, but also staff from PESS activities. UNFAO seconded a Geographic different ministries, especially those in the planning Information Systems (GIS) expert to support of department to participate in the training processes creation of geo-files for storing data. Norway due to their relevance in the use of data for the policy formulation153. UNFPA facilitated capacity 154 Interview with UNFPA Staff and Planning-related Ministry staff 155 strengthening processes by networking with other Interviews with Ministry of Planning Staff across Somalia agencies such as WHO, UNFAO and African 156 Ibid 157 Interview with MoPIC Staff in Garowe, Puntland 158 Interviews with MoPIC and UNFPA staff 152 Interviews with UNFPA and Ministry of Planning Staff across Somalia 159 Interviews with UNFPA and Ministry of Planning Staff across Somalia 153 Interviews with UNFPA and Ministry of Planning Staff across Somalia

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Statistics seconded a data expert to guide the team spearhead the preparations for planned population on generating and handling the data. UNFPA’s Arab census, demographic health surveys, conduct States Regional Office seconded staff to advice on situational analysis, vital analysis and improving the the PESS methodology. Other stakeholders also statistical skills of the staff. participated and contributed towards the success of the activities, for example a sampling expert was 4.3.3 Efficiency seconded from Tunisia to support on sampling of the nomadic communities. The expertise used in EQ 7: Was the programme implementation the whole process composed of experts in the fields approach (funds, expertise, time, administrative of survey design, implementation, sampling and costs, etc.) the most efficient way of achieving analysis, as well as demographers, data processors, results? cartographic and GIS, translators, and three national survey directors and other key support Assessing how efficient the implementation process staff. of P&D component of the CP to achieve the desired goals entailed looking at the interventions The role of UNFPA of providing technical and implemented, how they were implemented and the 160 financial support led to enormous benefits , circumstances and modalities of implementation. including ensuring quality control and adherence and in enhancing the capacity of the Somalia During the evaluation, the government stakeholders authorities on population and development issues. interviewed confirmed that the national execution UNFPA also recruited consultants and seconded modality employed by UNFPA was efficient in them to planning ministries to build the capacity of ensuring that the targeted results were achieved the staff and strengthen statistics system within the within the financial constraints162. The availability of 161 ministries; leading to enhanced capacity . In the staff seconded from the various ministries to addition to seconding staff, UNFPA paid salaries to take part in the PESS process made it easier for some staff based in the ministries in order to ensure implementation as they were on salaries and no facilitation of the activities between the ministries additional costs were involved in having to and UNFPA. The offices were also equipped through discharge their services in the process, save for the financial support of UNFPA. those who were seconded to the various ministries to facilitate the processes163. UNFPA therefore At the time of the evaluation, the P&D team was reduced operation costs that would have been training selected staff to further analyse the data to involved in assembling a team to conduct the capture district level data and write report on the survey. lower level analysis, including socio-economic characteristics of the Somali people. To enhance the Partnership between UNFPA and other UN agencies capacity of the planning ministry staff, they and other experts who participated in the process produced the reports, with the guidance of the also made it easier to get the required expertise UNFPA technical team. In addition, a high level from within, instead of hiring them. These occurred taskforce on population has been established to as results were being realised and learning

160 Interviews with UNFPA and Ministry of Planning Staff across Somalia 162 161 Interviews with Ministry of Planning Staff across Somalia Interviews with Ministry of Planning Staff across Somalia 163 Interviews with UNFPA Staff and Planning Ministry Staff

59 processes taking place to facilitate achievement of the intended targets164. PESS implementation across the country was delayed among the nomadic community and this The use of staff from ministries enabled the was due to the sampling methodology, which capacity strengthening of the programme employed targeting them at the water points and participants. This allowed for effectiveness in this had to happen during dry seasons. On the capacity strengthening the staff while at the same contrary, the timing did not coincide as long rains time filling the capacity gaps in various expertise in were experienced and the CP had to wait till there population and development issues that was was drought to target the communities167. To associated with Somalia workforce. From this mitigate this issue, UNFPA went ahead and process, structures were created that facilitated collected data from the other communities, rural cascading of learning processes where some results and urban, and also went ahead to continue were achieved across the country with the training the targeted enumerators, especially to involvement of the existing ministry staff. For retain them. This stretched the financial example, from the feedback from respondents, it commitment in the process and UNFPA successfully was evident that the ToTs initially trained by secured funding from Swedish government and its UNFPA’s team of experts were able to train others own bridged funding168. within the team, imparting knowledge that enabled successful implementation of the component As common in Somalia during the CP period, activities165. insecurity took a toll on the PESS implementation process and this affected access issues across the Delay in disbursement of funds to the implementing country, especially in the South Central regions partners was registered during the implementation which were deemed to be in control of the militant of the component activities. However, there groups. UNFPA however used satellite imagery weren’t cases where it was reported that there methods for estimation of populations in the rural were lags in implementation of activities or areas and access information according to the realisation of low targets. Because there was an sampling methodology. The evaluation did not understanding between the government and however assess the cost implications, using satellite UNFPA, they could implement activities supporting versus physically accessing the areas. This was with funds from other sources and replenish when supported and contributed by UNSOA (UN Support UNFPA disbursed the funds. Some factors were Office for Somalia)169. cited to be responsible for delays in funding as bureaucracy within the UN system, to which UNFPA Logistics across Somalia made it challenging for subscribes, late planning of activities, contractual implementation of the activities, especially on compliance issues by the IPs. Disbursement of CP meetings that required high level consultation. funds from UNFPA was variously cited as a major UNFPA used venues outside Somalia, which source of inefficiency in the programme cycle, involved additional costs especially visa, including during the MTR166.

167 Interviews with UNFPA and Planning Ministry Staff 164 Ibid 168 Interview with UNFPA Staff 165 Interviews with UNFPA staff and IPs’ Staff 169 166 Interviews with IPs and UNFPA Somalia CP 2011 – 2015 Mid-Term http://countryoffice.unfpa.org/somalia/2013/03/12/6401/population_ Review Report pess/ [Accessed on 02/01/2016]

60 accommodation and flights. It was however felt that to implementation of extensive surveys172. Further meeting outside Somalia was convenient for structures created by UNFPA across the zones achieving consensus among the different Somalia enabled the Somali authorities to implement PESS zonal government authorities. It was also efficient on their own. During the trainings, a toolkit was as in-country meetings would have led to developed by the taskforces and made available to distractions as some staff may have wanted to focus the ToTs and could be used to guide training. At the on their jobs. It was also one of the ways to mitigate time of the evaluation each zonal ToT had training against insecurity, especially for the facilitators other ministry staff on data collection, management whose work would have been affected, in terms of and processing, including utilisation, a confirmation conducive environment170. that the capacity was effectively enhanced and could be applied even after the project ends173. 4.3.4 Sustainability There is need to institutionalize capacity strengthening through the use of universities or EQ 8: To what extent are the development gains building specialised units within the government to made under the UNFPA supported interventions in provide statistical technical support. Somalia sustainable in terms of continuity in service provisions and partnerships integration of CP The strategy of working with staff seconded from activities into the regular country and counterparts’ the authorities will enable retention of staff even programming? after the PESS process ends and would be able to use the skills within for the benefit of the 174 From the design and implementation of the P&D government . There were however cases where component of the CP, it was evident that aspects concerns were raised on the government retaining that were supportive of sustainability while others the trained staff as they were attracted by other 175 were not. The consultative approaches and the institutions that were offering them better pay . modality of execution provided a platform for This was not in a large scale however. ensuring entrenched sustainability by creating a sense of ownership of the programme from the PESS enabled establishment of structures that will wide array of governmental and non-governmental guide the conduct of future surveys. In addition to stakeholders involved. The involvement of the same setting up ‘sample frames', or tools to make data stakeholders at every stage of the programme also collection in Somalia easier in the future, the survey ensured sustained interest and continuous creation has spent months training personnel in relevant of awareness on PD issues171. institutions, including ministries of planning and concerned line ministries to collect, process and Capacity strengthening was an in-built aspect of the analyse disaggregated population data – a crucial programme component and it is one aspect that the ingredient for effective policy formulation, including respondent were proud to have gained in addition humanitarian and development programmes. to producing, PESS, the product. This also led to strengthening of the statistical capacity of the

Somali authorities at various levels from the design 172 Ibid 173 Interviews with Planning Ministry and UNFPA Staff, FGD with participating data analysts and report writers and observation 174 170 Interviews with Planning Ministry and UNFPA Staff Interviews with UNFPA and Planning Ministry staff 175 171 Ibid Interview with Planning Ministry Staff

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Summary of Findings government also enhanced the capacity and The CP component of Population and Development facilitated ownership by the locals. was well aligned to the national policies and addressed the needs of the Somali people and The programme utilised available resources government priorities. Implementation and effectively to produce results as per the design. completion of the Population Estimate Survey of However, insecurity and issues of consensus- Somalia (PESS) was and continues to be relevant to building demanded that workshops be held out of a wide range of stakeholders including government Somalia. The methodology was effective. However, and development partners. Once completed, it will it was affected by rains leading to delays in increase availability and use of data on emerging estimating the number of the pastoralist population issues at national and sub-national communities as water points were to be used to levels. Through implementation of PESS, the CP access them. This also delayed implementation of effectively built the capacity of the government the PESS activity, but UNFPA was able to mobilise staff who were involved in all the processes. This further resources to ensure that this was done. will lead to improved decision-making and policy formulation, including data management, Building capacity of the government and monitoring and strategic planning. Through the establishment of coordinating mechanisms component, the programme has led to revival and facilitated transfer of skills and practical application strengthening of statistical units both at national of knowledge gained, manifesting learning and and sub-national levels to enhance the use and enhanced capacity. Further, direct engagement of dissemination of data. The use of pre-war regions of the government planning ministries facilitated Somalia, the need for data for informed decision- ownership which also assures sustainability. There making and high level coordination of activities of are however data needs and low capacity for the programme interventions ensured success in effective management of emerging population the component delivery. Working directly with the issues.

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4.4 Gender Component and their expectations towards its full 4.4.1 Relevance implementation, accession, Ratification and reporting. UNFPA supported government on

drafting and enactment process of the sexual EQ 1: To what extent were the programme offenses bill, FGM/C bill and the development of interventions consistent with the needs of the the FGM policy. One all these legal and policy frame beneficiary populations and to what extent was it works are finalised and fully aligned with government priorities as well as with implemented/reported, these will provide a policies and strategies of UNFPA? platform which will support access to justice and EQ 2: How well was the CPAP aligned with the ICPD contribute to the promotion of gender equality176. actions and MDGs as well as with the UNFPA All these are geared towards improving the legal Strategic Plans? framework and as gathered from the respondents,

the bills and policies address the needs of the In establishing the extent to which the programme Somali people177. is relevant, the evaluation process considered the interventions implemented that contributed to the Gender-Based Violence (GBV) remains a serious component objectives, their relevance to identified concern, particularly for women and girls in country needs, how they addressed the Somalia. It remains pervasive, with increased risks government priorities and development plans, and of violations, yet there are limited prevention to the UNSAS (up to 2014; and ISF for 2014-2016) programmes or medical, psychosocial or legal and UNFPA priorities and mandate. Further, services in place for the survivors. The protection evidence of corroborating information to the environment remains weak for the Internally assertions of the assessment was also a Displaced Persons (IDPs) and civilians affected by contributing factor. the clan conflicts, regions where the military

offensives by the AMISOM and Somali National The programme is relevant based on Somali’s Army against the Al Shabaab took place, regions commitment to promoting gender equality through, affected by the floods, forced evictions and where which is being translated by the gender policies life-saving services are either limited or facing developed across the entire country, commitment closure due to funding constraints. Reporting of made in the London communique of May 2013 with violation cases by survivors is also a challenge due the UN on ending sexual violence in conflict. The to stigma and ineffective response from the judicial provision of zero tolerance FGM in the 2012 178 Constitution of the Federal Government of Somalia system . In addition to limited educational among others. The need to strengthen capacity opportunities for girls, early marriages and strengthening and coordination efforts by both associated physical and psychological damage national and international actors and stakeholders severally continue to erode girls’ rights. Like any to prevent, mitigate and respond to GBV in both other humanitarian context, Somalia faces myriad Humanitarian and development situations .UNFPA, of challenges in bridging the gap in both basic through the programme component provided both services, such as post-rape care or psychosocial financial and technical support towards the current ratification process of CEDAW, training of 176 Interviews with Gender IPs and UNFPA staff; programme reports and updates government officials to understand the convention 177 Interviews with Gender IPs and UNFPA Staff 178 UNOCHA (2014), Somalia Humanitarian Needs Overview for 2015

63 support, and in comprehensive, high-quality stakeholders and implementation was done, with survivor-centred care, including case management. the government ministries taking charge, while the UNFPA’s programme on GBV response and programme supporting technically and financially. prevention was highly relevant in the context as the The outcome of the component, directly aim was to improve access to services by the contributed to the achievement of Outcome 3 of survivors, ensure safety of the affected and increase the UNFPA global strategic plan 2014 – 2017183. It community awareness targeting behaviour change also contributed to Outcome 3 the UNSAS (ISF 2014 and elimination of harmful social practices179. – 2016). Even through the gender components cuts across all the MDGs, it directly contributes to MDG Insufficient and unreliability of GBV data is limiting 3 which aims to promote gender equality and response and access to GBV services by the empowerment. All these efforts make the survivors in Somalia. Currently, the data that is programme component highly relevant184. available or depended on are those that have been reported incidences to service providers. Even in 4.4.2 Effectiveness situations where some data is available, these EQ 5: To what extent have the interventions figures represent only a small proportion of the supported by UNFPA in the field of gender actual number of incidents due to the stigma often contributed to: (i) Strengthened national and sub- associated with reporting GBV and/or the lack of national protection systems for advancing available services. This unreliability of data further reproductive rights, promoting gender equality and limits the understanding of trends and patterns in non-discrimination and addressing gender-based GBV incidents to improve prevention and response violence; (ii) Increased capacity to prevent gender- programming. The focus of UNFPA in strengthening based violence and harmful practices and enable the capacity of stakeholders in GBV information the delivery of multi-sectoral services, including in management systems (GBVIMS) through training, humanitarian settings? research, harmonization or data collection tools; EQ 6: To what extent was the programme coverage presents an opportunity to improve impact of inter- (geographic; beneficiaries) reached as planned? agency coordination mechanisms, enhances advocacy efforts, and thereby promotes evidence- In assessing the effectiveness of the gender equality 180 based fundraising to address existing gaps . component of the Somalia 2nd UNFPA CP, the evaluation considered analysing the degree of UNFPA’s approach of implementation through achievement of outputs, the extent to which the national execution directly contributed to the outputs contributed to the achievement of the performance of the governments through the outcomes and the unintended effects of the various Somalia zone-based strategic plans, as interventions implemented. The programme 181 182 stipulated for Somaliland and Puntland , and strategies were focused on legislative and policy corroborated by the ministry staff for Federal framework, capacity strengthening and Government of Somalia during interviews. The coordination, community mobilisation and UNFPA programme team consulted widely with the participation and the creation of partnerships to respond to gender-related issues, including service 179 Interviews with Gender IPs, UNFPA Staff and Programme report 180 Interviews with UNFPA Staff and Gender IPs 183 UNFPA Strategic Plan 2014 – 2017 and Interview with UNFPA Staff 181 Somaliland National Development Plan (NDP) 2012-2016 184 Interviews with UNFPA Staff and Gender IPs; Programme reports 182 Puntland Second Five-Year Development Plan 2014 - 2018 and updates

64 delivery for GBV survivors and harmonization of contribution to the intended results. During the tools such Clinical Management of Rape protocol, period of evaluation, the respondents confirmed GBV harmonised messages, referral pathway among receiving services in time and that most of the others. This component was mainly implemented in planned activities were on track186. Due to the partnership with the ministry of women and human nature of the interventions and areas of focus by rights in South Central Zone, ministry of women the organisation, it is evident that considerable development and family affairs (MOWDAFA) in strides were made towards realizing the expected Puntland and Ministry of labour and social affairs results as shown in Annex 2 for performance (MOLSA) in Somaliland and selected NGOs within framework187, although a few socio-cultural and Somalia. The programme component maintains a economic challenges still existed in addressing special focus on protection, promoting of women’s gender issues as analysed within the section of this rights, with a specific focus on the fulfilment of evaluation criteria. reproductive rights, and prevention and response to gender based violence (GBV). Prevention and Protection against all forms of GBV Gender-based violence (GBV) is a major challenge in Even though this component was a component on Somalia. The environment makes it difficult for its own, UNFPA integrated most of its activities, access to legal aid services for the GBV survivors. In especially the RHR component, including addition to the security challenges, there are also humanitarian assistance with the activities of this enormous social, cultural and religious barriers in one, yielding greater results185. The interventions reporting GBV cases and the survivors are often implemented in this component were in the main reluctant to pursue prosecution or civil cases pillars, which were; the legislative framework and against the perpetrator due to the social stigma policy development, provision of GBV services, associated with rape. The problem is further Community engagement for GBV prevention, GBV aggravated by the traditional and customary laws data management and coordination/capacity such as the Xeer system, which are used to resolve strengthening of GBV Actors and stakeholders. In majority of the cases and they are rarely survivor- order to strengthen the work of the stakeholders centred. In some areas, particularly in the South involved in gender equality and empowerment, Central Somalia, survivors, lawyers, witnesses, UNFPA supported coordination activities through journalists and family members have been working groups and taskforces. The support has threatened, harassed and arrested for reporting been both in financial and technical expertise. GBV offences.188 These further make the survivors hesitant to report GBV cases189. Discussions with stakeholders and beneficiaries indicate that support of UNFPA through its gender In order to improve the legal framework to address equality component was effective. Documentation prevention and protection against all forms GBV, accessed from UNFPA and its partners show that the interventions were delivered as planned and 186 Interviews with Gender IPs and FGDs with beneficiaries; and IP AWPs 187 the overall feedback suggest that the component is The performance Framework is summarised considering the baseline and the targets in Gender component that were to be achieved by likely to have made, or to make a significant 2015; and the achievement at the time of the evaluation, and based on the CPAP. 188 Interviews with IP staff 189 Legal Action Worldwide (2014): Legal Aid Providers Supporting 185 Interviews with UNFPA Staff, Implementing Partners and Survivors of Gender Based Violence in Somalia – A report beneficiaries; and review of programme reports commissioned by UNDP and UNFPA.

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UNFPA provided both technical and financial tenets of the convention193. It is worth noting that support in drafting of bills, policies and ratification UNFPA collaborates with related UN organisations, of internationally-accredited processes. During the and partnership with task forces, working groups, period, UNFPA, together with UNDP and UNHCR line ministries across Somalia in development of the technically and financially supported drafting of protocols, bills and policies. Sexual Offenses Bills (SOBs) across the country and at the time of the evaluation, they were at different A pilot project between UNDP and UNFPA to stages of legislation. In Somaliland, it was submitted address Gender Based Violence (GBV) through for discussion to the Parliament, in Puntland, it was community policing in Puntland was initiated. This approved by the Cabinet and awaiting approval by involved training female police volunteers, who the Parliament while for the Federal Government, used their skills to help break down barriers the bill was expected to be finalized by the Cabinet between the community and the police, making it and submitted to Parliament for approval before easier for women to approach the police for the end of the year 2015. These SOBs are the first of protection and justice services. It led to increased their kind in Somalia190 and have made significant community involvement and public confidence in progress in ensuring that sexual offences are the justice systems to address GBV cases, including prosecuted under the new sexual offences increased cases reported194. In Puntland for legislation191. example, more than 20 rape cases have been submitted to the courts for legal redress, making Through UNFPA’s support, Somalia made strides in considerable strides in justice for survivors. There the ratification of the Convention on the Elimination was historic milestone made in Puntland where a of all forms of Discrimination against Women rape perpetrator was convicted for 20 years (CEDAW). Training and sensitisation of the policy through the legal support of Maato Kaal, a one-stop makers on the process was conducted during the centre based at Garowe general hospital,195 period, with the Director-Generals from ministries, supported by UNFPA. Further in Puntland, highlight ministers and members of Parliament (MPs) the documented fact that UNFPA and UN partners targeted. CEDAW Technical Advocacy Committee, already addressed the issue of “Xeer” system where composed of DGs, chaired by the Deputy Minister the sexual perpetrators are convicted through the of Women and Human Rights Development and co- courts with the support of the trained police and chaired by Ministry of Information was set up, with under the Sexual Offenses Act196. the ratification roadmap and implementation plan 192 put in place . Initially, there was perception that Female Genital Mutilation/ Cutting the CEDAW was against the cultural and religious During the period, a number of developments took beliefs but through trainings, the people have been place towards eradicating Female Genital sensitised on the need to embrace the convention Mutilation/Cutting (FGM/C), including its health and even the constitution of the Federal government has been reviewed and aligned to the 193 Interviews with MW&HR in Mogadishu 194See http://countryoffice.unfpa.org/somalia/2015/03/23/11737/finding_just ice_for_survivors_of_gender_based_violence_in_somalia/ [Accessed on 5/01/2016] 190 Somalia GBV Sub-Cluster 2015 Annual Report 195 191 Interview with UNFPA, UNDP and Gender IP Staff http://countryoffice.unfpa.org/somalia/2015/03/23/11737/finding_just 192 Interviews with Ministry of Women and Human Rights (MW&HR) ice_for_survivors_of_gender_based_violence_in_somalia/ and UNFPA Staff in Mogadishu and Nairobi 196 Interview with UNFPA and UNDP Staff

66 effects, through the support of UNFPA. The FGM/C and scholars from the Al-Azhar University. At the bill and FGM/C Policy, which advocate for zero end of the workshop, the religious leaders issued a tolerance to FGM/C, was drafted across Somalia. declaration condemning FGM practice. Further, The Federal Government had made a first draft, religious leaders in Puntland issued Islamic decree with the help of UNFPA, in Puntland, the FGM/C (Fatwa) outlawing all forms of FGM/C and Policy197, outlawing the practice had been communities making public declarations on total approved, and in Somaliland the bill is still being abandonment of FGM/C. Other efforts include discussed at the government level198. The Somali criminalization in Somaliland of FGM/C by Constitution enacted in 2012 outlaws FGM/C. The professional health workers associations; and programme period saw strides made towards formation of Regional Religious Network against abandonment of FGM/C. The programme employed FGM with participants from Somalia, Djibouti, Egypt a multi-stakeholder involvement in the eradication and Sudan, notably prominent sheikhs and two of the practice in Somalia. The high level of Coptic religious leaders to provide a platform that government commitment, engagement of aims at facilitating experience and knowledge communities, youth peer groups, religious and sharing among faith-based entities in the region traditional leaders, health associations, women through the organisation of ASRO202. UNFPA has groups, FGM/C practitioners and child protection made progress in addressing FGM/C amid socio- groups provided an enabling environment for cultural and religious challenges. The gains made, FGM/C abandonment199. especially in Puntland with religious leaders, and other regions of the country can form learning Challenges still continue to affect the fight against points for cascading and can be utilised to address the FGM/C practice. These include reaching a this in the other areas including rural communities. common position by the religious leaders on total abandonment of all forms of FGM/C, reaching the Constant changes in the government have also remote rural areas and medicalization200 of affected development and enactment of the Bill in FGM/C201. UNFPA has however managed to involve both the South Central Somalia and Puntland, but key religious stakeholders, including religious UNFPA worked closely with the DGs of the gender- ministries across the governments and Muslim related ministries to overcome challenges. Wider Scholars to clarify the beliefs. UNFPA ASRO, in consultations bore fruits for the legislative partnership with Al-Azhar University in Cairo held a framework, especially with the opinion leaders, workshop for Somali religious leaders on FGM in including religious leaders, as this led to the Djibouti in December 2015. Participants included approval of the bills. Continuous engagement of the representatives from line ministries, prominent policy-makers, discussing their concerns also built Sheikhs, civil society representatives, UNFPA staff trust between them and UNFPA, thereby promoting ownership of the processes and decisions by the 197 national governments. http://countryoffice.unfpa.org/somalia/drive/GoodPracticeonFGMinSo malia.pdf 198 Interview with UNFPA and Gender IP staff; and programme reports GBV Response and Service Provision and updates 199 Interview with Gender IPs and UNFPA staff; and UNFPA-UNICEF GBV response and service provision was also FGM/C Joint Programme Report 200 Medicalization of FGM/C refers to a case where a medical integrated in the RH and Humanitarian Assistance practitioner conducts the FGM/C, which is identified to be legitimizing the act, despite its long term negative effects. 201 Review of programme reports and Interviews 202 Interviews with UNFPA and CP Reports

67 interventions, a process which realised a lot of relief health staff, adoption of forensic evidence to the survivors. In partnership with local and generation protocols and guidelines, international NGOs, UNFPA supported sensitisation/awareness raising, to support in establishment of One-Stop Centres for GBV investigations on rape cases206. In efforts to curb the survivors. These centres provide a range of services threats that some GBV survivors undergo, UNFPA in one facility. The GBV service delivery established 3 safe homes in the South Central zone interventions included; psychosocial support and and a GBV resource centre operational in Hargeisa counselling, post rape treatment and other medical and at the time of the evaluation, there were plans care, legal assistance and community based GBV to establish more in Lower Shabelle region to prevention203. To reduce stigma, these centres are provide relief to the survivors207. It is hoped that located within health facilities, which can also these homes are therapeutic to the survivors as conveniently facilitate referral for further clinical they felt better protected where safe houses are management, especially for rape cases. A total of 11 established, particularly in South Central Somalia centres (2 in Puntland and 9 in South Central) were and get to recover from trauma associated with established and supported to provide these GBV208. In recognition of the security challenges services. In addition, UNFPA supported and involved for those involved in the fight against GBV, facilitated establishment of 3 family centres in UNFPA financially supported the development of Daynile, Hodan, and Dharkenley districts of Banadir draft Security and Safety Protocol for lawyers, region providing multi-sectoral services for GBV clients and witnesses.209 survivors, including clinical management, psychosocial, legal, dignity kits and material The programme also supported stakeholders in assistance204. UNFPA also facilitated development of mapping of GBV service providers across Somalia a comprehensive Manual on Clinical Management and to ensure that quality and standardising of Rape Survivors, which was finalized and validated procedures was enhanced, supported development with the leadership of MOH and technical support of standard operating procedures (SOPs). The of the Clinical Management of Rape (CMR) Midwifery curriculum was also revised to integrate taskforce; and was endorsed by all the Ministries of FGM/C issues210. Access to services is still hampered Health from the authorities of Somalia. It is being by insecurity issues in Somalia, thereby some rolled out. locations missing out on the services. The programme has however reached the areas through Currently, there are challenges of rape cases, RH outreach campaigns where integrated services especially for those seeking legal services, where have been provided. Even though UNFPA has tried cases are dropped because of lack of laboratory for in supporting of partners to provide survivors with collecting and analysing forensic evidence205. livelihoods and economic empowerment services, it UNFPA has realised this and with support of SIDA, is still in small scale211. launched a pilot project on establishing a forensic system in Puntland. This project involves setting up forensic lab, training of lab technicians and other 206 Interview with UNFPA Staff 207 Interview with UNFPA and IPs 203 Interview with UNFPA and Gender IP staff; and programme reports 207 Interview with UNFPA Staff and Gender IPs and updates 208 Ibid 204 Ibid 209 Interview with UNFPA Staff 205 Interview with Gender IPs in Garowe and Mogadishu; UNFPA Staff 210 Interview with UNFPA Staff and Gender IPs and FGDs with beneficiaries in Garowe 211 Interview with UNFPA Staff

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GBV Advocacy the women reverting to the practice as it acted as a Given the challenging environment addressing source of their livelihood. Male involvement in GBV gender issues in Somalia, UNFPA continues to prevention would be an effective way in fighting enhance multi-stakeholder involvement and gender discrimination. This was inadequately capacity strengthening mechanisms to ensure embraced by the programme217. The GBV working effectiveness in combating GBV. The programme groups however identifies the role of the Male and supported implementing partners (IPs), including Youth networks in prevention of GBV and are regional authorities across Somalia to build capacity increasingly targeting their involvement.218 of community leaders, religious leaders, opinion leaders, young girls, women, boys and men and to A strong inter-ministerial working relationship that enable them to create awareness on issues related has been fostered by UNFPA has helped yield good to gender equality, including sexual and gender- results in the efforts to improve gender equality and based violence (SGBV) in the target areas212. UNFPA empowerment in Somalia, especially on was successful in its programme through the efforts development of bills and in the advocacy efforts. in engaging the regional states, including involving This could be seen in the CEDAW committee them in decision-making, further making the composed of several ministry DGs, FGM/C task processes more inclusive and consultative.213 force which is led by the ministry of women and human rights and co-chaired by the MoH. UNFPA targeted raising awareness on GBV and Community engagement on total abandonment of FGM/C through enhancing community mobilisation GBV in the 3 zones is ongoing and has seen lots of and sensitisation using different media. The youth commitment from the stakeholders, including peer (Y-Peer) networks were capacitated to reach policy-makers219. Anti-FGM/C clubs were formed in out to the young people with messages that aimed Somaliland universities and colleges with members at addressing behaviour change, social norms, being activists, religious leaders, mothers and girls practices and utilisation of available services. They reached through small group discussions, billboards, participated in sensitisation events on early public events and theatre performance on marriage, girls’ education and rights214. NGOs and FGM/C220. There still exist misconceptions on other stakeholders were involved in reaching out to FGM/C requirement by the Islamic religion and as the communities using messages that had been much as progress is being made in awareness harmonized through the coordination efforts of raising, total abandonment of the practice faces a UNFPA to promote consistent communications. challenge of whether the religion accepts the suni- Radio messages were aired on GBV prevention, and type of FGM/C.221 workshops held to train various participants on GBV messages215. The use of former circumcisers as To further increase advocacy, UNFPA supported champions for abandonment of FGM/C also yielded commemoration of International Day for Zero- positive results216. There is however likelihood of Tolerance to FGM/C and International Women’s

217 Interview with IPs 212 Interview with UNFPA and Gender IPs Staff and programme report 218https://unsom.unmissions.org/Portals/UNSOM/GBV%percent20WG 213 Interview with UNFPA Staff and Gender IPs %20Strategy%20final%20Jan%2029%202014_new.pdf 2146http://countryoffice.unfpa.org/somalia/2015/10/29/12996/using_p 219 Interviews with UNFPA and Gender Ministries across Somalia erformance_and_poetry_to_break_the_silence_in_somalia/ 220 Interviews with UNFPA and IP staff, FGDs with youth and 215 Interviews with UNFPA and IP Staff; FGDs with Youth and Observations programme reports 221 Interviews with UNFPA Staff; 2015 Somalia GBV Sub Cluster report; 216 Interview with UNFPA staff in Nairobi and Mogadishu and UNFPA – UNICEF Joint programme Report

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Days across the country. 16 days of gender activism management, advocacy, networking, were also marked through the support of UNFPA. It communications, resource mobilisation, and is also during these occasions that further harmonized tools (reporting, service mapping and sensitisations to the masses were conducted standard operating procedures) were developed.225 including raising awareness on the importance of UNFPA leads in the coordination of GBV upholding the rights of women through interventions as the Chair of the national GBV Sub empowering them. Specific messages are designed Cluster, national FGM/C Taskforce, GBVIMS through radios, talk shows, theatre and public Taskforce and Clinical Management of Rape (CMR) events during these days to emphasize the need to Task Force and strengthened field based GBV Sub- increase the campaigns to abandon harmful Clusters in Puntland (Garowe, Bossaso and practices.222 Galkayo), South Central (Mogadishu, Baidoa, Middle Shabelle, Dollow, Hiran, Dhobley, Kismayo and Capacity Strengthening for the GBV Response Galgaduud), and Somaliland (Hargeisa).226 UNFPA UNFPA contributed enormously towards enhancing also supported the coordination capacity through the capacities existing in Somalia towards the recruitment of Regional Gender-Based Violence response in addressing gender issues. A number of Coordinators and posted in the field by UNFPA. capacity strengthening training were conducted for These coordinators have provided technical support service providers on case management, GBVIMS, to the functions of the sub-cluster within the GBV guiding principles, GBV referral pathways, and respective regions with monthly coordination GBV case investigation and prosecution training for meetings held and action points followed and police and Criminal Investigation Department implemented.227 (CID)223. The programme in collaboration with selected implementing partners strengthened To get comprehensive data on GBV is difficult to various stakeholder capacities in the come by in Somalia. This hampers evidence-based implementation of gender-related bills and policies. programming and advocacy. To respond to this, The programme also built the capacities of key UNFPA enhanced capacity of the actors on GBV actors on GBV including related ministries. With Information Management System (GBV-IMS). The funding from the Office of the United States Foreign GBV-IMS enables humanitarian actors who are Disaster Assistance (OFDA)/USAID, Humanitarian responding to GBV to safely collect, store and financing such as Somalia Humanitarian Fund, analyse reported GBV incident data, and facilitate Central Emergency Fund, and also Swedish the safe and ethical sharing of reported GBV embassy, UNFPA is strengthening the technical incident data228. This was done through training of capacity of the GBV Working groups across Somalia. stakeholders on data collection techniques, The programme supported training on GBV harmonization of data collection tools, training on coordination and programming for 45224 chairs, co- utilisation of the system and supporting chairs and focal points for the working groups from development of a User Guide. UNFPA is the lead the three regions of Somalia. GBV working group agency on GBV-IMS and chairs the IMS task force. chairs/co-chairs/focal points were trained on UNFPA further partnered with UNICEF and UN human rights based approach, results-based

225 Ibid 222 Ibid 226 Interviews with UNFPA Staff 223 Interviews with UNFPA, UNDP and IPs and Programme reports 227 ibid 224 Interview of UNFPA staff and Programme reports 228 Ibid

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Women to conduct GBV survey. This will provide key data to inform programming. There are still As one of the evaluation criteria, efficiency gaps on FGM/C data and other forms of GBV, due to examined the extent to which the costs of the CP inadequate capacity and other social and cultural and implementing partners could be justified by its issues that hinder reporting229. Inadequacy in results/ the value for money, taking alternatives reporting of GBV cases hinders assessment of the into account. extent to which they occur. There is limited coverage of UNFPA support in the rural areas. The consultative coordination forums were strategic Integrated RH outreach programme tends to in ensuring that UNFPA worked as a team with the address this to the extent of resource constraints.230 relevant stakeholders in an integrated manner. However, in terms of efficient programme UNFPA Somalia programme has endeavoured to implementation, there was a problem of lack of strengthen its staff capacity to be able to respond skills and low educational levels of the involved to the needs within the country. The gender unit is partners on gender issues. This means there was a however still understaffed limiting the capacity of huge need for capacity strengthening to ensure that the programme activities to be effectively human rights and gender equality were recognised monitored and evaluated. At the moment, the by everyone. There was also the need for qualified component only has one focal-point staff in all the personnel to implement the gender promotion three Somalia zones, while in Somaliland and South programmes. By focusing on technical assistance Central zones, the staff double up as the focal and capacity strengthening UNFPA was therefore points for the programme’s youth interventions. providing a most required resource.233 Integration of the component interventions into the RHR component interventions bridges this gap, but UNFPA work plans were in line with government not effectively231. It is also notable though that the priorities and there was collaboration and team programme implements through IPs, and that work in implementation with the line ministries notwithstanding, some deliverables from the staff across the country. Implementing partners in the component demand more time. From the commended the excellent working relationship with evaluation, it came out that apart from UNFPA on gender issues. This could be attributed to coordination with the IPs, staff time to monitor the the improved coordinating fora where joint interventions was lacking as the available staff have planning, reporting and response of programmes more workload.232 were done with implementing partners through the working groups and taskforces supported by 234 4.4.3 Efficiency UNFPA.

EQ 7: Was the programme implementation Integration of gender services within the RH approach (funds, expertise, time, administrative component facilitated efficient provision of services costs, etc.) the most efficient way of achieving to the affected in an effective manner. Positioning results? of the post-rape kits at the referral points and major hospitals ensured that the services were accessed

229 Interviews with UNFPA Staff and IPs; FGDs and programme report 230 Interviews, FGDs and Outreach activity report 231 Interview with field UNFPA staff 233 Interviews and programme reports 232 ibid 234 Interviews

71 at the time of referral. These were also availed to needs of the target communities and national the IPs. One-stop centres promoted efficiency in the governments across the country239. The kind of services accessed by the GBV survivors. The respondents reached, identified with the UNFPA provision of the minimum initial service package interventions and could identify with the (MISP) enabled access to services in an efficient achievements that the programme component had manner by the survivors during emergencies235. yielded240. The government especially identified the contribution that the gender component made in The strategic target of the influential community improving the legislative frameworks through and religious leaders facilitated country-level policies, bills and the conventions. It was evident advocacy mechanisms in prevention of GBV. The this contributed directly to their strategic plans, involvement of the religious leaders in exchange thereby enhancing national ownership241. The programmes in Egypt and scholars enabled them to approach to implementing the intervention through make public decrees and declarations against some the government structures also enhanced the practices like FGM/C, due to the messages and ownership aspects thereby building their capacity to learning236. The involvement of circumcisers as ensure that they are able to implement the laws or agents of change in advocacy against FGM/C enforce mechanisms even after the end of the showed efficiency in delivery especially their programme period. The utilisation of local IPs also messages on zero tolerance to FGM/C237. made the communities identify with the interventions of the CP component242. Perceptions 4.4.4 Sustainability and conflicts of opinions, especially on the FGM/C and gender empowerment bills still exist and this EQ 8: To what extent are the development gains needs to be addressed to ensure that there is made under the UNFPA supported interventions in effectiveness in realisation of the intended results. Somalia sustainable in terms of continuity in service To the extent that the community structures, provisions and partnerships integration of CP including religious groups and the governments activities into the regular country and counterparts’ have not sufficiently supported GBV programming, programming? there are serious challenges for sustainability of the programme. From the evaluation feedback from the targeted respondents, it was evident that the programme The likelihood of sustainability was also inherent in addressed the aspects of sustainability within some of the interventions such as development of Somalia238. These were through ensuring national protocols for clinical management of rape, capacity- and community ownership, capacity strengthening, building the partners on GBV prevention and implementation mechanisms and addressing response coordination, harmonization of messages relevant aspects that affect the community. on GBV and establishment of taskforces and working groups which were in turn co-chaired by 243 From analysis of documents and feedback, it was the local NGOs and government line ministries . evident that the programme intervened on strategic Strengthening the curriculum of RH to include

239 Interviews with UNFPA IPs and Programme reports 235 ibid 240 Interviews with IPs 236 Interviews with UNFPA staff 241 Interviews with Government (gender) staff 237 Interviews with UNFPA Staff and IPs 242 Interview with UNFPA and Government (gender) Staff 238 Interviews with IPs 243 Interview with UNFPA staff

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FGM/C will also ensure sustainability by setting standards to be adhered to even when the programme comes to an end244. Partnerships and networking endeavours initiated by UNFPA to develop strategies, establish one-stop and family centres, safe homes were also implemented with a sustainability lens. Resource mobilisation capacity is still insufficient among the government ministries and other stakeholders in the gender programming in Somalia. As the legal and clinical frameworks continue to be strengthened, the services would require support.

The magnitude of contribution that UNFPA made towards development of technical guidelines including the standard operating procedures (SOPs) in GBV response and prevention was given a great acknowledgement by the respondents245. The financial support to the gender empowerment processes and technical support provided by the UNFPA gender experts came in handy in ensuring that change was realised towards ensuring gender equality. Due to inadequate capacity to implement effectively among the local NGOs and the government246, the quality of services will be compromised.

244 Interviews with UNFPA Staff and Programme report 245 Interviews with IPs 246 Interviews with UNFPA Staff and IPs

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Summary of Findings The programme component incorporated The interventions of Gender Equality were sustainable measure to ensure lasting solutions to adequately designed and adapted to achieve the the harmful practices in Somalia. Development of targeted outputs which addressed the needs of the bills, policies and ratification of CEDAW facilitated target populations and government priorities. sustainability, capacity strengthening, partnerships Achievement of the component outputs were on and establishment of coordination mechanisms also course, and in some cases targets were surpassed ensured meaningful participation and thereby as reviewed during alignment of the programme to strengthening sustainability. Low capacity and the UNFPA Strategic Plan 2014 – 2017. The strong socio-cultural and religious beliefs, unless programme interventions covered the country, but more actively addressed can affect the gains made at regional levels. The programme contributed to towards ensuring gender equality in Somalia. improvement of the legal framework to addressing GBV through supporting development of gender Bill, FGM/C policy, and enactment of Sexual Offences Bill. There was also improved prevention of and response to GBV through improved advocacy effort and support to GBV survivors, including mechanisms aimed at ensuring zero tolerance to FGM/C. The programme interventions were highly integrated with those of the RHR component to ensure comprehensive service delivery. However the main challenges affecting implementation of the GE component were the strong social-cultural, including strong religious perceptions, which the programme has managed to deal with during the course of the programme. The achievement of results is attributed to the close working relationships built through partnerships, thematic taskforces and working groups and enhanced coordination mechanisms established and spearheaded by the programme across the country and at Nairobi level. These facilitated efficiency in delivery of the programme services, in addition to the technical support provided by the programme gender specialists and resource mobilisation. Increased advocacy and capacity strengthening for ease of mobilisation and sensitisation against the harmful societal norms affecting Somali women and girls has been realised (refer Annex 2 for the component performance against the set target in the CPAP).

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4.5 Management and Coordination Responsibility for programme management, as agreed in CPAP, rests mainly with respective 4.5.1 Management government ministries and their assigned focal The UNFPA Somalia CO management is one of the staff, using the Annual Work plans (AWPs) modality, UN agencies responding to the Somalia developed with UNFPA assistance by implementing humanitarian crisis under the United Nations partners within the framework of CPAP, as a means Coordination Team (UNCT). The country of coordinating and monitoring programme programme is coordinated by a team in Nairobi and implementation. The CP was mainly implemented implementation is mainly done by the field staff, following the National Execution (NEX) modality in who operate at zonal level, led by a Head of Sub- both Somaliland and Puntland, while in the South- Office (HSO). The technical team based at the Central zone; the modality was both NEX and Direct Country Office level guide implementation, Execution (DEX). This is due to the development including supporting the field staff in all the related nature of interventions and relative stability in both programme components. The programme unit has Puntland and Somaliland which favours NEX, while got experienced technical staff in RH including RH in SCZ the humanitarian response favoured the DEX 248 Specialist, RH Commodities and Humanitarian modality . NEX proved more effective, especially Assistance; Gender and GBV; and Population and in building the capacity of the national government, development and effectively contribute to the made it possible for audit for the first time in 20 programme’s efficiency and effectiveness. Further years, enabled effective coordination role of the contribution of these staff is discussed under the governments, eliminated bureaucracy, quality thematic programme component. Insecurity limits control, brought about consolidation and response staff, especially the international specialists, to the government needs and achievements, and movement particularly in the South-Central zone ensured compliance with the ICPD which does not 249 and this hinders their effective visit programme advocate for creation of a parallel system . Even sites247. though DEX modality was favoured in most humanitarian response, particularly in the South The UNFPA’s programme support unit of finance, Central Zone, there is need to coordinate with the procurement and administration was reported to national government, especially on recruitment of be moderately effective, but with incidences of IPs and service provision, to further ensure that delays in delivery of services, caused by the gaps are effectively addressed and achievements bureaucratic and rigidity in the UN system, as captured. reported by most IP respondents. However, given the identified gaps in capacity of the IP staff, the 4.5.2 Coordination slow process in disbursement of funds at the CO level, though affected service delivery and EQ 10: To what extent has the UNFPA CO execution of the plan, was to ensure that there was contributed to good coordination among UN compliance and accountability based on agencies in the country, particularly in view of agreements between the involved parties. avoiding potential overlaps?

248 Interview with UNFPA Staff 249 Interviews with UNFPA, Somali regional Government, UNDP and UN 247 Interview with UNFPA staff and IPs; and programme reports Coordination office staff; and programme reports

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Coordination as a function is embedded in the providing technical advice and oversight of GBV design of the programme and UNFPA played a great prevention and response activities in Somalia252. role in supporting coordination mechanisms across Through UNFPA programme leadership and the country in the thematic components of the support, the GBV sub-cluster members developed programme250. In addition, the programme and implemented the activities within the Strategic coordinated its activities with the national Response Plan and the GBV Sub Cluster Strategy, in government to ensure that gaps were effectively coordination with the government and other addressed. Within the UN, the CP was implemented stakeholders in order to integrate GBV in the multi- under the umbrella of UNCT which made deliveries sectoral response253. Improved coordination of the of services more coordinated251. GBV sub clusters is a tangible milestone for UNFPA Somalia as this has greatly enhanced the services The RH component was implemented in close offered to survivors and at the same time promoted 254 consultation with the ministry of health. The the visibility of the GBV sub cluster . In addition, programme also closely coordinated with Youth- the country programme facilitated coordination of related ministries on youth activities in the RH RH through establishment of RH unit and RH component. The Population and development was working groups in each zone to coordinate RH, and mainly implemented in coordination with the strengthening of the midwifery associations. Ministry of National Planning and development in Somaliland, Ministry of Planning and International UNFPA also chairs FGM/C, IMS and Clinical Cooperation for Puntland and the Federal Management of Rape Task Forces and has government of Somalia; while on the other hand, technically supported their operation, including Gender component was implemented in financially supporting their operations. These have collaboration with MoLSA in Somaliland, MoWDAFA improved responses due to service provider in Puntland and Ministry of Women Affairs and mapping and standardisation of operating Human Rights in the Federal Government of procedures (SOPs), including harmonization of Somalia. advocacy messages, realised through coordination255. UNFPA supported coordination through leading task forces and working groups in the programme Key informant interviews confirmed efforts to component thematic areas. UNFPA chairs the GBV minimize overlaps, however there were reported working group in Somalia and co-chaired by Somali cases that still existed requiring strengthening of Save Women and Children (SSWC). Currently, there coordination mechanisms256. There was also are 12 GBV working groups (one in Somaliland, reported limitation in reporting due to insecurity in three in Puntland and eight in South-Central zones) some operating areas257. Further, due to increased in Somalia and UNFPA has trained co-chairs, players in GBV issues, monitoring and reporting including mentoring and coaching them. Within the could be a challenge when coordination and Somalia Protection Cluster, the GBV sub-cluster continues to serve as the primary body for 252 Interview with UNFPA Staff across Somalia and Gender IPs; Somalia humanitarian coordination of GBV deliverables, 2015 GBV Sub-Cluster Annual Report 253 Somalia GBV Sub-Cluster Annual Report 254 Interviews with UNFPA and Gender IPs Staff 250 Interviews with UNFPA and Gender IPs Staff 255 Ibid 251 Interviews with UNFPA, Somali regional Government, UNDP and UN 256 Ibid Coordination office staff; and programme reports 257 Ibid

76 advocacy among stakeholders is not strong, thereby address issues that are unique to them and their affecting response258. communities through dialogue. UNFPA is coordinating research together with UNICEF on the UNFPA supported establishment of the RH unit and Joint FGM Programme. This will enable evidence- this facilitated efficiency in monitoring and quality based response of GBV, including FGM/C that is assurance towards delivery of RH services in various currently an area with limited prevalence data264. government and other health facilities259. The unit, which also acted as a launch-pad or custodian for UNFPA collaborates with UNDP in the UN Joint Rule the manuals, protocols, records and guidelines for of Law Programme towards contributing to the RH services enabled coordination and effective achievement of the Somalia Compact Deal. In provision of the service260. The other coordination Puntland, UNFPA coordinated with UNDP to provide mechanisms led by UNFPA included RH Working Solar-powered electricity supply to the Garowe Groups, National Maternal Death Surveillance and general and Galkayo hospitals265. UNFPA partners Response (MDSR) task forces, Reproductive Health with UNICEF and WHO in the JHNP also actively Commodities and Security (RHCS) & Youth participate in one cluster meetings with them. In coordination fora at Nairobi level; Youth Forum in Somaliland, there were however cases of overlaps the zones co-chaired by UNFPA (established in in the health ministry on the roles of the partners in September 2015)261. JHNP, causing confusion266. Further, this arrangement in JHNP at times led to delay in decision-making and some of the decisions Interviews confirmed UNFPA has a high standing depended on the other partners, who at times among the UN partner agencies262. UNFPA played a would delay, thereby leading to delayed key role with the UNCT during the period of implementation267. The success of PESS was as a evaluation. Towards realisation of access to skilled result of UNFPA’s role in coordination of resources birth attendance by the pregnant women, UNFPA within the Somalia UNCT, with UNFPA having worked closely with World Food Programme (WFP), brought on board different expertise within the UN which provided incentives to women who delivered and other stakeholders to support the process to its in the health facilities. It is notable that this successful design and implementation. PESS was cooperation was lauded to have contributed to also conducted through coordination with the High mothers visiting health facilities for delivery Level task Force established with membership services263. UNFPA, together with UN HABITAT led across the country268. UN Inter Agencies Stakeholders Forum in Nairobi, which facilitated consultations towards Internally, harmonization or coordination of development of the Somali National Youth Policy activities among the programme component units is upon request from the Federal Government of not strong269. Integration of programme Somalia, a product which is aimed at creating a framework that will enable youth in Somalia to 264 Interviews with UNFPA and Government MoH staff 265 http://countryoffice.unfpa.org/somalia/2015/01/29/11339/a_solar_ 258 powered_maternal_and_neonatal_health_centre_for_somalia/ Interviews with UNFPA and RH IP staff 266 259 Interview with UNFPA and Government MoH staff Ibid 267 260 Interview with UNFPA and Health IPs Ibid 268 261 UNFPA Staff Interviews Interviews with UNFPA, Government, UN Coordination office Staff; 262 Interviews with UNDP and UN Coordinating Office staff and programme reports 269 263 Interviews with UNFPA and Government MoH staff Interviews with UNFPA Staff

77 components’ activities, especially with the RHR established by the programme during component, is strong, however the Gender and implementation period supported achievement of humanitarian response unit coordination was cited results in the country framework. not to be strong270. Even though the target populations are the same, with the almost the same partners implementing activities in similar areas joint planning sessions are rarely embraced271.

Summary of Findings Management and delivery of the UNFPA Country programme was within the UNCT coordination mechanisms. The programme was initially developed to contribute to the UNSAS outcomes and later changed to the UN’s ISF in compliance with the contribution to the Somalia Compact. UNFPA is an active member of the UN coordinating mechanism within Somalia. UNFPA leads through chairing sub-clusters and coordinating working groups (GBV and RH) and participating in various cluster meetings led and coordinated within the UN. It further implemented joint programmes with other UN agencies like UNDP on access to justice by GBV survivors; UNICEF on FGM; and UNICEF and WHO on JHNP, and included joint planning which eliminated possibilities of overlaps in targeting and services provided by the joint membership. The role played by UNFPA in the P&D component in coordinating expertise within the UN to ensure successful design and implementation of the PESS was also an achievement worth noting. There was high level of complementarity in the joint programmes. Joint programming however affected the programme especially where the other members were not able to implement their programmes as planned. The programme employed NEX modality of implementation and this managed to facilitate further coordination of interventions and capacity strengthening of the government structure. Coordination and partnerships

270 Ibid 271 Ibid

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4.6 Added Value Somalia is country divided under a number of regional authorities with a lot of notable differences EQ 9: What has been the comparative strength of in political ideologies and perspective with regard to the UNFPA CO response to the Somalia context of legitimacy. While conducting the PESS, UNFPA was protracted crisis and particularly in the areas of able to bring together all the three zonal authorities reproductive health, gender-based violence and of Somaliland, Puntland and the Federal Republic of population and development? Somalia to accept the use of the pre-war regions of Somalia as the sampling boundaries. This brought In assessing if UNFPA added value through its the comparative advantage to UNFPA by succeeding programming, the evaluation guided by the where it seemed impossible among other 273 evaluation question sought to establish the development partners within Somalia . comparative strength of the UNFPA CO response to the Somalia context of protracted crisis and The level of consultation that UNFPA nurtured with particularly in the areas of reproductive health, its partners and stakeholders was highly gender-based violence and population and distinguishable among the respondents and this development. Overall, the evaluation results have made it stand out in cooperating with its shown that UNFPA added value to the stakeholders. The working relationship that the governments’ goals of improving the quality of life leadership of the UNFPA Somalia CO nurtured was of the target segment of the population. The lauded as very positive and identified as one which respondents, both NGO and government IPs facilitated a lot of successes achieved within the 274 identified UNFPA as having technical and country . It was recognized as one of the UN comparative advantage in all the key components agencies that spearheaded adoption and readily that it supported or coordinated. The financial aligned its programmes to the Somalia Compact support that UNFPA provided was strategic in New Deal, aimed at contributing to a lasting peace 275 contributing directly to filling existing gaps in the in Somalia . The method of execution by UNFPA components. (NEX) directly contributes to the national performance, thereby contributing to the UN’s 276 UNFPA had notable comparative strengths during result framework . implementation of the country programme. One of the notable strengths was its ability to gather a The programme focus also gave UNFPA a team of technical experts drawn both from the UN comparative advantage among development and international spheres to plan and implement stakeholders in Somalia. It was the lead in the areas the population estimate survey of Somalia (PESS). of reproductive health, population and The methodology used in this exercise benefited development and played a lead role, including from numerous contributions from different coordination of GBV prevention, response and experts, ranging from the design to analysis of the management. By focusing on health, specifically data. This immensely contributed to the success of reproductive health endeared the programme to its the activity, including building the capacity of the partners and beneficiaries. Improving the quality of 272 Somalia government staff . 273 UNFPA, IP and UN Coordination office staff interviews; Programme reports 274 Interviews with IPs 275 Interviews with Government and Alignment Documents 272 UNFPA and IP staff interviews 276 Ibid

79 life and aiming at saving the lives of women and of programme activities with the government. For their children makes it a key partner that addresses example, the youth ministries across the authorities the needs that affect every household in Somalia. have had a staff each recruited and seconded by On population and development, UNFPA played a UNFPA to coordinate the youth activities in key role in building the capacities of the zonal collaboration with the ministry staff. Further, governments in generating data through financing UNFPA supported salaries of staff in hospitals and supporting implementation of PESS which providing CEmONC services by the government provides evidence to inform and improve policy through NGOs. For example in Burco Regional formulation and implementation. Further it had a Hospital had 24 out of 50 Health Poverty Action niche in coordination of gender programming (HPA) staff salary paid by UNFPA, in addition to across the country. The implementing partners and toping up salaries of the rest of the staff within the the beneficiaries lauded the contribution of UNFPA hospital at an agreed percentages281. and could easily identify the role played by UNFPA in its mandate, including a close and cordial working UNFPA contributed immensely on information relationship277. Assessment of UNFPA by the management within the related line ministries beneficiaries was also positive278. There was also through supporting data collection in research; value addition in the role of UNFPA in humanitarian training on IMS both for management of RH coordination at Nairobi and zonal levels as well as commodities and GBV; implementation of PESS; and JHNP central and zonal steering committees, where supporting of coordination mechanisms in task the programme participated actively279. forces (FGM/C, Clinical management of Rape, RHCS, RH, MDSR and GBV IMS) and Working groups in The role that UNFPA played in supporting the zonal Somalia. Establishment of technical coordination authorities’ units in salary payments and top-ups units like the RHU and Statistics Units in the across the country contributed immensely to the Ministries of Health and Planning respectively achievement of results in thematic performance. In added a lot of value in operationalisation of the Ministry of Health, UNFPA supported the technical procedures, including overseeing salaries of those in the RH unit, including supporting implementation of guidelines and SOPs. activities of the units to perform its duties. Statistics functions in the planning-related ministries across Integration of programming enabled realisation of the country were also supported by UNFPA, key results across the country in the thematic areas including seconding experts into the units to guide of the CP. Integrating gender interventions within and build the capacity of the ministry staff on the RH component contributed to increased access various technical areas280. On the other hand, to to services, especially by the GBV survivors and enhance coordination of GBV activities across the integration of FGM/C issues in the revised country, UNFPA facilitated employment and midwifery training curriculum. Use of RH outreach payment of salaries of regional coordinators. campaigns to reach the hard-to-reach areas also Notable were staff in ministries recruited and facilitated access to maternal health services. seconded by UNFPA to coordinate implementation Involvement of the youth to conduct community mobilisation and sensitisation on HIV and AIDS,

277 Interview with UNFPA IPs and FGDs with beneficiaries FGM/C, GBV and Family Planning made it easier for 278 Ibid 279 UNFPA and IP Staff interviews 280 Interview with UNFPA IPs and programme reports 281 Interview with UNFPA IPs’ staff

80 increased access to information on the same282. UNFPA also made a strategic targeting of the youth for employment to participate in PESS as enumerators and serving in other roles, thereby building their capacity and creating employment opportunities for them283.

Summary of Findings The respondents during the evaluation identified UNFPA as having technical and comparative advantage in all its programme components that it supported or coordinated. The programme exhibited strength in the area of RHR through development of protocols and manuals to guide quality provision of maternal services. It also exhibited technical expertise on gender issues and contributed immensely to addressing the gender issues within Somalia. Another notable strength was its ability to gather a team of technical experts drawn both from the UN and international spheres to plan and implement the population estimate survey of Somalia (PESS). The financial support that UNFPA provided was strategic in contributing directly to filling existing gaps in the components. The national execution (NEX) modality directly contributed to enhancing the capacity of the government to deliver in its strategic needs. Its coordination role of sub-clusters within the health (RH Sub-cluster) and Protection (GBV sub-cluster) gave it a comparative advantage in the areas.

282 Interviews with UNFPA and IPs’ staff 283 Interviews with UNFPA Staff

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4.7 Monitoring and Evaluation points hold RH positions, limiting their level of support and delivery in the M&E functions in the 284 From the design of the UNFPA programme, M&E various offices . The field staff mainly coordinate was given prominence in the CPAP towards the programme activities, including monitoring with measurement of the performance of the Country the partners to ensure that activities are effectively Office in its mandate. The programme indicators implemented. The component technical specialists were supposed to be measured on a yearly basis also provide guidance on effective implementation and consolidated as the programme progressed of programme interventions, including providing during the period of implementation. The CPE standard tools for reporting on programme assessed this function of the programme based on progress. the levels at which this was done. It also looked at From respondent feedback, the capacity of the CO the actions taken during the processes, based on M&E Unit is low in comparison to the workload that 285 the results. The evaluation looked at the routine is expected from the unit and results . There is M&E activities implemented in the course of the separate budget for M&E in the programme. programme. However the budget is not sufficient for 286 implementation of the planned M&E activities . Currently, the programme activities are The Country Office uses M&E System of reporting implemented by components, and the M&E unit is that is results-based Strategic Information System able to utilise these plans to minimize on resources, (SIS) and electronic in format. However, at the field which ensures cost-effectiveness. level, the CO monitors and reports accomplishment of activities by IPs through quarterly work plan According to the CPAP, the role of M&E function progress report which informs achievement of during the CP is clearly stated. It also explains the milestones. The system used by for reporting its responsibilities of each stakeholder, but most achievements is led by UNFPA. However other importantly, it is evident that it is a function jointly system such as health management information involving UNFPA, the governments of the Somalia system (HMIS) is government led. The system is zones and other implementing partners. The also clear on the roles of various users. The UNFPA country office M&E unit on the other hand Programme and operation staff report on is to support all the related processes, including achievement of results on quarterly basis. The participating in joint M&E activities with the CO quality assurance (QA) is provided by the M&E staff, other UN agencies and other stakeholders person and the results approved the country office within the country. There were mixed feedback on deputy representative or the Representative. this function from the evaluation interviews and UNFPA also provides appropriate templates for analysis of the feedback. Overall, the programme reporting. conducted planned M&E activities; however the

scope was too broad and wide for the CO unit’s The Country Office has a full time M&E Specialist, capacity to effectively capture the intended and based in Nairobi. His functions are complemented targeted results287. by the field component staff, with the leadership of the Heads of Sub-Offices. Each of the three field 284 Ibid offices have an M&E focal point responsible for 285 Ibid supporting M&E functions, however these focal 286 Ibid 287 Interview with UNFPA staff

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All the evaluation activities planned for during the Monitoring and supervision of the activities by the period were conducted and this CPE concludes the government entities was limited due to list of evaluation activities for the CP cycle. inadequate capacity, both financial and technical. Application of recommendation from the 1st cycle There has been capacity strengthening for CPE was used in designing of the second cycle CP. government partners and civil society during The 2nd cycle CP MTR conducted informed review biannual reviews, though it was cited as inadequate of the programme indicators and informed the for the IPs to effectively implement M&E CPE design295. activities288. Human resource capacity within the government was also limited as reported by some During the period CP cycle, the CO developed respondents289. There were however no major Annual Reports (COARs) for the years of existence. problems with regard to compliance monitoring; These were in compliance with the M&E of the staff and partners have been trained in the use country programme management. The CO also of results-based M&E and tools290. There were used the Annual Work plans to assess the however structural weaknesses with regard to performance of the partners who were awarded the collection of information in the country in the grantees and had to comply through reports general given the weaknesses in the system, to ensure that the feedback mechanisms on the including HMIS291. Further, the implementing programme progress and achievements by each partners have very little funds allocated to M&E and partners were reported. UNFPA also conducted related activities292. partner-focused review of the AWPs, which in addition built the capacity of the partners296. The The UNFPA 2nd Cycle CP has an M&E calendar constant programme review also contributed in across the years stating the activities that were to identification of gaps both programming and be implemented each year and these were strategic position which were effectively planned categorized under thematic areas depending on for and supported297. There was no evidence-based where the activity fell. UNFPA programme staff regular feedback with regard to government participated in the planned monitoring activities, partners within the framework of the M&E system including joint activities, however most of the of the CPAP, as feedback is given to planned survey activities could not take off as implementing partners during biannual and annual planned due to resource constraints293. Insecurity reviews and on visits to IP office. The CO have and implementation context within Somalia also developed a template for providing feedback to IP. hindered on-site and frequency of monitoring activities, including field visits by the technical According to the CPAP, the CP was to be evaluated staff294. under the overall framework of UNSAS, and later UN’s IRF. UNFPA participated in Joint M&E activities conducted among the UN agencies, together with the government ministries,

288 Feedback from M&E Unit including Joint reviews and monitoring activities 289 Interviews with IPs and UNFPA staff within the UNCT framework. UNFPA was also 290 Interviews with UNFPA Staff 291 Interviews with UNFPA Staff 292 Ibid 295 293 Ibid Interviews with UNFPA staff and analysis of records and reports 296 Review of Partner reports and interviews with UNFPA and IPs 294 Interviews with UNFPA Staff 297 Interviews with UNFPA and IP staff

83 involved in joint data collection with other reviewed to reflect on the measurable partners e.g. participating in the UNICEF-led MICS deliverables. Initially, the CP had a total of 22 and those of GBV, including data on FGM/C298. indicators (16 Output and 6 Outcome) but These further facilitated coordination and remained the same after alignment, though with enhanced evidence-based planning and targeting. drastic but contextualized description. These efforts further enhanced accountability and Recommendations to review indicators were also 302 ensured efficient use of resources. contained in the MTR for the programme. These indicators were reported on the COAR for 303 In order to monitor progress of the programme, 2015 . MTR recommendations were channelled UNFPA supported annual reviews, with the into management decision-making processes and partners and to further make decisions, including further informed work plans development for 2014 299 changes for effective programme delivery . and 2016304. The M&E system exhibited inherent Further, mid-term review of the programme was systemic weaknesses towards ensuring effective to be conducted the third year of the programme monitoring of results. Formulation of indicators cycle. All these activities were implemented and outputs in turn led to mismatch between during the period of evaluation and confirmations indicators, output and outcomes305. This led to a are there to address the identified impediments to weak linkage in the results chain of the 300 effectiveness in service delivery . UNFPA programme. The level of conducting action supported these meetings, both financially and research to inform programming was also not so technically. The government departments prominent during the period of implementation. however led in facilitations and presenting This would have informed learning processes, performance and discussing the gaps together as further providing evidence-based programme stakeholders, which also included NGOs in the planning and implementation. Further, it could be same thematic areas of interventions. It is notable seen in the CPAP planning and tracking tool that that during mid-term review, weaknesses in RH there is no baseline for measuring most of the commodity management, break-outs in the supply indicators, which limits the level of performance pipelines, among other areas requiring support, measurement. were identified. UNFPA responded by training partners involved, including reporting to manage Summary of Findings 301 the stock effectively . The MTR also identified The overall performance of the Programme on M&E weaknesses in the description of the indicators was largely functional where key actions and and UNFPA made efforts to review some of them strategies were adopted during the period. There during alignment and extension for the current were joint monitoring activities within UN partners programme as discussed in the paragraph that and the government partners, periodic review follow. meeting supported by the programme, support supervision by the technical staff in the areas of During the programme alignment to the SP IRF gender and RHR. The programme also used the 2014 - 2017, the programme indicators were Country Office Annual Reporting and Annual Work

298 Ibid 302 UNFPA CP 2011 - 2015 Mid-Term review Report 299 Interviews with UNFPA staff, CPAP and Partner Reports 303 2015 Somalia Country Office Annual Report 300 UNFPA and IP Staff interviews 304 Interview with UNFPA Staff 301 Ibid 305 From analysis of the M&E and programme documents provided

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Planning to report on its performance. There was technical staff to all the project sites. Limited also enhanced coordination of programme activities capacity of the government also hindered with the partners which ensured frequent continuous monitoring and supervision. All the monitoring of results. Field visits by the CO and field planned evaluations were conducted. Inherently staff contributed to monitoring of the programme though, the M&E function had weak linkages activities. Insecurity, emergency nature of the between the indicators, outputs and outcomes, implementation context and inadequate staff which affected effective measurement of the capacity however limited monitoring activities by results of the programme.

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5.0 CONCLUSIONS

This chapter presents the conclusions derived from government, non-governmental actors and the findings in the previous chapter. In compliance beneficiaries. The CP’s thematic components; i.e. with the UNFPA CPE Handbook, the section is the RHR component addressed the health priorities presented in subsections with both strategic and as contained in the Health Sector Strategic Plan; the programmatic perspective. The conclusions made in P&D component addressed the data and this report are guided by the evaluation questions information needs to guide the governments on and criteria, where the strategic conclusions refer policy formulation and planning, bridging the data to the overall Somalia Country Programme needs that has been in existence for the past three performance and have been structured around decades; and the gender component’s effectiveness relevance, efficiency, sustainability, added value, in addressing gender issues along the priority areas coordination. Programmatic conclusions refer to of the line ministries (zonal authorities) was of high UNFPA’s programmatic areas and are largely based repute. on the effectiveness criterion. The capacity gaps that the programme filled during 5.1 Strategic Level the period of evaluation was also noted and the contributions that this made towards achievement of the development and humanitarian response in CONCLUSION 1: The country programme was found Somalia. The CP was aligned to the UNFPA Global to be well adapted to the population needs in the strategic plan (2014 -2017) in compliance with the areas of reproductive health, gender equality and ICPD. It also contributed to the implementation of population and development and continues to be the MDGs and ratification of the CEDAW. It also relevant both at the national and international upheld the South-South cooperation especially levels. It was also responsive to the emerging needs during the conduct of PESS. across the country.

UNFPA, through its humanitarian response unit Ø Origin: EQ 1 and EQ 2 ensured emergency preparedness and responded to Ø Associated Recommendations: 1 & 2 the needs IDPs and arising emergencies as per the Minimum Initial Services Package (MISP) standards. The UNFPA Somalia CP interventions were The programme responded to arising emergencies implemented according to the New Compact, through supporting IDP crisis as a result of the 2011 contributing to the Integrated Strategic Framework - 2012 drought throughout Somalia, 2013 cyclone (ISF), contributes to the achievement of the MDGs effect in Puntland, and in 2015 during the return of and is aligned to the UNFPA 2014 – 2017 Strategic Somali returnees and refugees from Yemen in Plan. UNFPA was found to work through the Bossaso and Berbera towns in Puntland and government; aligning its programme support within Somaliland respectively. It also responded to arising the established development framework and the needs, especially in providing support to cover up national strategic plan of the government, including for gaps that arose during the period. regional priorities. The interventions were relevant to a wide range of stakeholders including the

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UNFPA cannot be sustained. The humanitarian CONCLUSION 2: The design and implementation nature of context also hinders achievement of of the programme took into consideration factors sustainability as the causes of humanitarian crisis of promoting sustainability of the programme still exist and require response from the interventions and results. However, the development stakeholders. Given the efforts of the humanitarian nature of the context in most parts programme in capacity enhancement of the staff on of Somalia, highly religious and cultural-sensitive various thematic CP components, assessing the perceptions and inadequate capacity of the capacity and ability of the staff to achieve the government entities affected the extent to which intended deliverables would concretize sustainability could be realised. sustainability mechanisms. Further, given the sensitivity and perceptions on the programme

interventions with regard to culture and religion, Ø Origin: EQ 3, EQ 4, EQ 5, and EQ 8 including inadequate commitment of some of the Ø Associated Recommendation: 4 related institutions; with UNFPA still involved in

advocacy activities to address the barriers; The programme invested heavily in capacity sustainability may be a challenge in actualizing. strengthening and development of protocols, guidelines and manuals for utilisation in standardising operations and improving quality of CONCLUSION 3: There were measures in place to service delivery; and promoted community ensure that the programme was implemented in ownership in its process and this made it easy for a high level of efficiency, ensuring achievement of the interventions to be accepted and supported by intended results in a cost-effective manner. the community. However, there were cases of inefficiency especially in operations; some of which were In GBV prevention and response, the programme necessary given the context, while some were not advocated for development of protocols, policies in control of the programme. and bills that aim to enhance legal frameworks to clarify management of GBV cases and prohibit some harmful practices and behaviours. In RHR, the Ø Origin EQ 7 development of RH guidelines, and establishment of Ø Associated Recommendation: 6 RH unit for coordination will ensure continuation of application of skills and standards accordingly. UNFPA programme had qualified technical staff who managed and coordinated the activities with There were however a number of aspects of the the stakeholders, further providing effective programme that, even though strategic in guidance for quality service delivery. Coordination enhancing service delivery, are not sustainable in and joint approach to implementation of activities, the long-run. Provision of standardized services may including M&E was cost-effective in delivery of also be limited by the fact that in the South-Central services. M&E functions were integrated in the zone, most facilities are privately owned, hindering components which improved the efficiency in sustainability. The high level of dependency on the delivery amid inadequate staff and financial programme’s operations by the government; for capacity. Joint reviews and monitoring contributed example payment of salaries and salary top-ups by

87 a lot in assessing the performance of the staff, and their context-sensitive programming programme through an efficient manner. approaches and making tangible changes to the lives of Somalis. Its contribution within the UN The UNFPA’s programme support unit of finance, system is very valuable and played a great role in procurement and administration was reported to contributing to the achievement of the targeted UN be moderately effective, but with incidences of inter-agency results. The UNFPA’s NEX modality delays in delivery of services caused by the enhanced the capacity of the government to meet bureaucratic and rigidity in the UN system, as its needs in the strategic plans. reported by most IP respondents. Late planning of activities and verification (scrutiny) of documents CONCLUSION 5: UNFPA facilitated and for contractual compliance by the IPs also led to participated in coordination mechanisms within delays in fund disbursement to the IPs and decision- the UNCT and was effective providing technical making. support and guidance in joint programmes with the UN partners; enhancing synergy among Operation costs were also reported to be higher stakeholders in service provision; and building given the security situation which hinders the CO the capacity of implementing partners. from being based in Somalia, which ideally would be in Mogadishu but cannot due to the existing insecurity situations. Crucial meetings bringing Ø Origin: EQ 3, EQ4, EQ 5, EQ 9 together the staff from various zonal governments Ø Associated Recommendation: 4 were also held outside again due to insecurity in Somalia and political reasons. UNFPA Somalia participates in, supports and leads different coordination mechanisms within the UN CONCLUSION 4: UNFPA Somalia Programme has system, national and regional structures and made use of its comparative advantage and institutions within the country. The programme added value across its three components; SRH, nurtured collaborative approach between the P&D and Gender Equality; and was resourceful programme and the zonal governments, supported with both expertise and funding. Its approach to coordination mechanisms within the country, and implementation through the national execution also closely coordinated with the other UN modality, partnership building and use of organisations to bring about synergies in provision context sensitive approaches enhanced its niche of services to the affected. within the country among stakeholders in the country. The programme’s facilitation of development of terms of reference for various taskforces and

working groups facilitate clear roles and execution Ø Origin: EQ 3, EQ4, EQ 5, & EQ 10 of responsibilities, thereby eliminating duplication Ø Associated Recommendation: 3 and overlap and enhancing complementarity in

service provision and support. It also supported and The government and other stakeholders within participated in joint programming, resource Somalia appreciate the value added and the level of mobilisation, joint planning and advocacy within the contribution that UNFPA has nurtured over time, UN system. Some isolated elements of confusion including the good working relationship with the still exist, especially on clear mandates of WHO,

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UNICEF and UNFPA in the JHNP, where some ambitious and ambiguous in some circumstances, respondents could not effectively differentiate the thereby limiting measurement of performance of limits of each partner. The programme also the programme. These were however reviewed to harmonized its programmes to contribute include a mix of qualitative and quantitative effectively within the Somalia Compact Deal, indicators.

CONCLUSION 6: The UNFPA Programme 5.2 Programmatic Level embedded M&E functions in its implementation

processes. The planned evaluation activities Overall, analysis of the results of the evaluation, the were accomplished during the programme evaluation team concludes that the UNFPA period. On the other hand, monitoring activities programme has been effective. This has been were implemented, to a greater extent, but manifested in capacity strengthening; development were however affected by insecure context, of guidelines and protocols, including SOPs; inadequate IP and UNFPA staff capacity. coordination and partnerships for enhanced Further, there was inadequate operation synergy and service delivery. Working through the research to continuously inform programme government structures ensured ownership and design and implementation; and inadequate support of the programme interventions, training of baseline data and consistent targeting by qualified midwives, lobbying and advocacy for indicators legislation on zero tolerance to FGM/C, including further eliciting its role in coordination within the religious decrees (fuatwa) and public declarations in UNCT. Weak capacities of the government Puntland were key highlights of the programme. ministries and other implementing partners CONCLUSION 7: UNFPA has contributed to however affect the strength of coordination improved access to reproductive health services mechanisms. through supporting enhanced maternal health-

care service delivery processes, including Ø Origin: M&E Assessment training of qualified midwives and establishment Ø Associated Recommendations 5 & 6 of training and coordination institutions,

strengthened capacities of zonal authorities, Joint reviews and monitoring contributed a lot in community-based and non- governmental assessing the performance of the programme. organisations, and the most-at-risk youth. Coordination among partners through task forces However, service delivery and awareness raising and working groups also facilitate the monitoring in the rural areas are still inadequate, including mechanisms of the programme interventions, limited coverage of the component including data collection. All planned evaluation interventions, which through JHNP reached only activities were implemented. The M&E function of 9 out of the possible 18 regions. Cultural the programme was however weak in operation challenges are also affecting access to family research to guide implementation and updating of planning and RH services by the youth. Further, the implementation framework. Staffing capacity of the targeting of the youth issues was unit is limited in the field. Insecurity also affects and inadequate, in proportion to their population in limits field visits by the technical expatriate staff. the country. Formulation of the initial indicators was too

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delivery. Blood banks for the CEmONC services Ø Origin: EQ 3 and EQ 6 were inadequate in the facilities and hindered Ø Associated Recommendations: 7, 8, 9, & 10 timely provision of the services. Availability of ambulances for emergency referral to health Improved access to skilled birth attendance was facilities were not effective, especially in the rural enhanced through supporting training of midwifes areas. and facilitating establishment of midwifery schools, staff and health facility capacity to provide better Increased access to family planning services was and quality services improved, coordination unit registered during the period of coverage due to and task force for reproductive health established UNFPA’s advocacy expertise in engaging the highly across the country and enhanced partnership with cultural and religious society to support the idea of the ministries of health and the midwifery training family planning. The uptake of the services still face institutions. Deployment of the trained midwives to challenges of strong cultural and religious barriers. the designated rural communities is inadequately addressed in the current arrangement. Further, the Integration of interventions of the programme gaps of midwives in the country is still exist and this components with those of the RHR component was requires more funding support. Development of strategic and contributed to enhanced achievement manuals and service delivery protocols effectively of results. Integrating youth activities with the RHR guided quality and standardisation of delivery of RH effectively ensured increased awareness among the services. youth on their reproductive health, including access to services. Discussing sex issues openly in Somalia Joint programming through the JHNP enhanced is not acceptable especially among the youth and achievement of the programme outputs in the RH adolescents and this significantly affect delivery of component. The coverage was also effective in the ASRH. The review and development of the National targeted areas; however this was limited to only 9 Youth Policy helped in focused targeting of the regions across the country. Even though this was youth issues across the country. The youth needs shared equally between the zonal governments, it require deliberate efforts and measures to be was not proportionate for the South Central zone addressed, given their high percentage in relation to which has a total of ten (10) regions and with a the country’s population. larger population distribution. Further, given that this was a partnership involving complementarities, The CP’s response on HIV and AIDS prevention was some deliverables were affected by the other effectively integrated in the RHR component of the partners not being effective in delivering services. It programme, particularly on prevention of mother to also affected decision-making, leading to delays, as child transmission (PMTCT) services with the some decisions had to be made jointly among the maternal health made access to the services partners. effective. The youth actively participated in sensitizing the communities leading to increased Access to BEmONC and CEmONC services improved awareness; however they faced challenges of during the period of evaluation, courtesy of UNFPA speaking about sex-related transmission, given the efforts, however, the services were not integrated conservative nature of the Somali community. in all the health facilities. Neonatal services were There is also inadequate data on HIV prevalence, also not fully integrated in the package for service

90 making response ineffective in terms of UNFPA supported revival of statistical and built the achievement. government’s capacity to effectively implement similar endeavours, including on the use of data for UNFPA’s Humanitarian response effectively decision-making. UNFPA which had collapsed with responded to the needs and provided timely the government of Siad Bare. The strategy used by services to the vulnerable IDPs and refugees. The UNFPA to build the capacity of the staff through unit was responsive and addressed the needs, recruiting and seconding of consultants or other including prepositioning commodities for related technical UN agency staff to support the emergency cases arising during the period in government in various areas, through training made compliance with minimum initial service package. a difference. The governments’ capacity may The maternity waiting homes played a great role of however be hindered since they have little improving access to maternal health services by resources to retain the trained staff to provide those in displacement, including referral services. services and they get hired by NGOs or the private These facilities also facilitated access to GBV by the sector who can afford to pay them well. survivors. CONCLUSION 9: Interventions of the UNFPA’s CONCLUSION 8: UNFPA made a Gender Equity component were relevant and commendable step towards availing data to contributed immensely for the response and guide policy formulation and planning prevention of the gender-related violence and through financing and technically supporting inequalities in Somalia. The programme implementation of the Population Estimation provided essential added value to the area of Survey of Somalia (PESS). It also enhanced GBV response in Somalia through development the capacity of the government ministries on of bills to improve legal framework, training, data management and utilisation, which will awareness raising and supporting coordination further enable effective planning and activities on GBV in the country. Strong socio- monitoring of development interventions, cultural factors, traditional justice system and including performance measurement. religious perceptions influence achievement of gender equality and limited the utilisation of the available services by the programme Ø Origin EQ 4, EQ 8, EQ 9 component. Ø Associated Recommendations 11 & 12

Statistics lacks in key sectors of the economy and The process of design and accomplishment of PESS these will need further data collection to tell the enabled creation of enumeration areas that form a level of occurrence. Civil registration and vital basis on which the population census can be statistics is lacking (a concept note developed for conducted. The success of the PESS was due to the this and submitted), demographic health surveys ‘hunger’ for data by all the governments, and need for refinement of the strategic plans to community participation, financial and technical reflect on the reality. There is also no data policy support available through the coordination of existing to guide on use and management of data. UNFPA, and having the right people (done by

Somalis) to participate in the process. Ø Origin EQ 1, EQ 5, EQ 8, EQ 10

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Ø Associated Recommendations 13, 14, & 15 of services and awareness levels created about existence of services like the access to justice The component interventions are relevant and were project between UNDP and UNFPA which has effectively implemented during the period of facilitated training of female police officers and evaluation. The programme contributed to deploying them at the gender help desks, giving the improving the legal framework for GBV response survivors the confidence to report. However, access supported development of laws, conventions, to justice by the survivors is still an issue given the policies and bills aimed at improving the legal strong traditional Xeer system where the survivors framework for handling gender-related cases. The never get justice and at times forced to be married bills were however not enacted except in Puntland by the perpetrator. Further, culture, fear of where the Sexual Offences Bill was enacted into reporting, perceptions, and community norms are law. Ratification of the CEDAW was done by the still impediments to realisation effective response Federal government and the roadmap to to GBV. This also applies to zero tolerance to implementation developed. Socio-cultural factors, FGM/C. including religious beliefs and perceptions however contributed to influencing most aspects of this The CP contributed to coordination and improved component. GBV response through the establishment of the task forces and working groups; and availability and UNFPA is effectively enhancing collaboration and training of the stakeholders on the GBV IMS, data partnership between the government, NGOs and management led to improved response. However, other stakeholders and this has led to sustained the programme is weak in prevention due to the response among partners. However, inadequate humanitarian context that is more focused on support from the government, particularly on response. Somalia is still riddled with conflicts and capacity especially on enactment of the gender- there is continued violence against women and related bills and response to other GBV issues is children heightening GBV cases, limiting the level of limiting the gains and effectiveness in the effectiveness in response. Changes in results from collaboration. Partnership between UNFPA and GBV response take time and with limited level of NGOs facilitated GBV response across the country. documentation, it is difficult to see immediate Establishment of one-stop centres and family changes. centres ensured access to services by the survivors. Reporting of GBV cases improved due to availability

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6.0 RECOMMENDATIONS

This section addresses the areas that were found to to-reach areas of Somalia. It is therefore be either working well for replication or not recommended that in the next programme effectively addressed for improvement in the cycle, the programme need to prioritise rural subsequent programme cycle. The areas, after conducting assessments, including recommendations are categorized for consideration establishing contextual applicable strategies. both strategically and programmatically, and are The concept of maternity waiting homes can be informed by the lessons learnt, the strategies escalated to increase access to maternal yielding better results, areas of weaknesses and services in the under-served locations underlying contextual issues that need to be 3. Joint programming, coordination and addressed for maximization of the strengths integration of interventions facilitated exhibited and opportunities presented. enhanced achievement of the UNFPA

programme outputs and eliminated overlaps in 6.1 Strategic Recommendations targeting and services delivery. The evaluation recommends replication of this approach but From the results of the evaluation, UNFPA Somalia also suggests that the reasons for delays by programme is strategically placed and addressing other joint partners affecting delivery of service felt needs. The programme is also responsive. To should be assessed and addressed effectively, maximize on this and enhance realisation of the including joint planning and partner capacity more impact in its programme, the evaluation enhancement. recommends the following; 4. Even though Somalia is still full of capacity gaps, 1. UNFPA should continue the good practice of while at the same time lacks adequate financial focusing its programme interventions and capacity, UNFPA should focus on strengthening support on results of studies, needs capacities of government institutions and civil assessments, strategic plans, stakeholder societies, including in the area of resource consultations and feedback, and implementing mobilisation. UNFPA should also embed in its partner plans and being responsive to arising design; measures to integrate sustainability needs for effective service provision and strategies, including focus on mitigating the coverage by UNFPA. Further, given the possible threats to sustainability in the magnitude of the youth needs in Somalia and partnership towards aligning the programme with the UNFPA 2014 – 2017, the next programme cycle 5. The M&E capacities among the implementing should create a new programmatic component partners were found to be limited and were not for the adolescents and youth and allocate effective in their responsibilities. The evaluation funds to the component. recommends enhanced capacity strengthening of the IPs on M&E. There is also need for the 2. The evaluation results showed that the M&E unit of the CO to ensure that there is clear performance of the programme in the regional linkage between results and indicators in the areas of coverage is exemplary and that huge programme design; and conduct a baseline at gaps still exist, especially in the rural and hard- the beginning of the next programme cycle for

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effective targeting and measurement of results. trained midwives go back their communities Further, the M&E staff capacity should be and their work well supervised and supported assessed against the workload and increased with home delivery kits to perform their work. accordingly for improved efficiency and 8. UNFPA should strengthen its assistance in continued tracking of performance. UNFPA streamlining the Supply Chain System through should also use its technical expertise to the development of a National RHCS Strategic support the CO in guiding operation research so Plan. that even the M&E processes can enhanced. 9. There is need for more engagement of the MoH 6. In planning for the 3rd CP it would be prudent to and other stakeholders to provide routine emphasise on conducting baseline survey obstetric fistula repair services to maximise on where there is no data and to emphasise data the demand that is created through capture by IPs to facilitate realistic target mobilisation; and allocate more funds for setting and trend analysis at both MTR and CPE. innovative methods of prevention like This would enhance impact measurement. prevention-with-positives (PwP), including Further, best practices of the programme giving women special focus. should be documented and shared to ensure enhancement of knowledge management and 10. Uptake of family planning services improved more effective south-south collaboration. In during the period and the implants were addition, UNFPA should continue to build reported to be preferred by the beneficiaries government capacities; and should identify for convenience. There were also some ways to reduce direct service delivery, thus also respondents reporting resistance by the reducing dependence and contributing to religious leaders towards family planning. Due sustainability. to these feedback, the evaluation recommends the following; 6.2 Programme Level

a. That UFPA build on the gains made to intensify further advocacy Reproductive Health measures including more religious 7. UNFPA should continue supporting production leaders to get their buy-in to the of qualified midwives as there is still a huge gap importance of family planning for midwifery within the country to cover the towards improving the health of the needs of the existing population. This should be mother and baby; through training, supporting infrastructure and regulation of the profession. Deployment of b. The newly installed LMIS system trained midwives was found not to be effective should be managed to ensure that as a number of the trained midwives did not go implants are stocked in warehouses back to their communities of recruitment either and supplied to the health facilities due to non-engagement by the government or on a timely basis to ensure that lack of support from the government. there are no stock-outs and expiry of Supervision of those in the communities was those supplies that are not currently also reported to be low. There is further need used by the clients for UNFPA and the government to engage, reassess the arrangement and ensure that the

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c. Male involvement in family planning gender issues into development policies and activities need to be intensified and plans. strengthened to ensure that men Gender Equity support their wives in seeking and 13. Through the CP, the efforts were made to accessing family planning services improve the legal framework to address Gender based violence. These were however not Population and Development completed during the period and still a lot of advocacy and lobbying is required for the 11. Implementation of PESS has revived the interest pending gender-related bills and policies to be in data for policy formulation and planning by passed or enacted as law and operational. the Somalia governments. To enhance UNFPA needs to use its relationship with the sustainability, UNFPA need to support capacity government to lead and support this course. strengthening of government institution 14. Enactment of Gender Policy was found to be including expanding into supporting analysis of contentious and perceived to be sensitive to the population dynamics data and its utilisation for cultural and religious values. Given the policy development, programming and impact sensitivity of the issue, UNFPA should intensify assessment. UNFPA should provide support further consultations and sensitisation of the through the following key activities; Population content of the Policy to clear misunderstanding research on its intentions and what it stands for to a. The demographic health survey address the misconceptions leading to b. Population and housing census; and resistance. UNFPA should also capitalize on the c. Operational research gains made in the area of FGM and engage the

religious leaders, especially in the rural areas, 12. The need for effective institutions and systems including engaging Muslim Scholars to of statistics and planning to drive the effectively address the FGM population and development agenda cannot be overstated. It is therefore imperative that these 15. Coordination and collaborative efforts between institutions are strengthened through a UNFPA and its partners facilitated effective comprehensive capacity development that response to GBV especially through the task includes, short and long-term trainings, forces and working groups. Capacity of the deployment of experts in various relevant fields partners was however identified to be low for and South-South cooperation. Twinning effectiveness. There is need to continue arrangements between the statistical and strengthening both the capacities of the planning units in Somalia with those from other partners and the coordination between them countries in Africa should be explored. Capacity and the communities; and support coordination development should aim at integrating with them to form sustainable local movements population, Reproductive Health, youth and to end GBV through public education and locally based support services for survivors.

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ANNEXES

Annex 1: Terms of Reference

COUNTRY PROGRAMME EVALUATION

TERMS OF REFERENCE

Draft version

February 2015

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1.0 THE BACKGROUND Somalia has been in conflict for almost three decades since the collapse of Siad Bare administration. The country has been divided essentially into three semi-autonomous zones namely Somaliland, Puntland and South Central Somalia. Somaliland and Puntland territories enjoy relative stability compared to lawless South Central Zone. Because of the conflict, Somalia is among the largest and most complex humanitarian crisis in the world. It is estimated that About 2.9 million people are in need of humanitarian assistance including an estimated 1.1 million people are internally displaced by recurrent droughts, floods and conflict. The maternal mortality rate for Somalia is amongst the highest in the world; one out of every 12 women dies due to pregnancy related causes. Poor and inadequate basic social services continue to undermine the resilience of the people in the country. 2.0 2nd Programme Cycle for Somalia UNFPA assistance to Somalia began in the 1970s and continued until 1991, when the civil war led to a suspension of development programming. From 2003 to 2006, UNFPA resumed support on comprehensive reproductive health service delivery, focusing on training and the provision of medical supplies for internally displaced persons in Somaliland and Puntland. The first programme of assistance 2008-2009, was extended through 2010. The programme was based on priorities identified in the United Nations Transition Plan for Somalia, 2008-2010. The 2nd Country Programme (CP) was approved by the UNFPA Executive Board for the period 2011-2015. The CP is based on national priorities identified in the Somalia Reconstruction and Development Programme, 2008-2012, and the United Nations Somalia Assistance Strategy, 2011-2015, which focuses on three areas: (a) emergency response; (b) the transition from conflict to peace and from crisis to recovery; and (c) longer-term development. The 2nd Country Programme seeks to improve the overall quality of life of the Somali people. The programme is aimed at contributing to the three outcomes of the United Nations Somalia Assistance Strategy (UNSAS): (a) Somali people have equitable access to basic services in health, education, shelter, water and sanitation; (b) Somali people benefit from poverty reduction through equitable economic development and decent work; and (c) Somali people live in a stable environment, where the rule of law is respected and rights-based and gender-sensitive development is pursued. For the special situation in Somalia, the United Nations Country Team (UNCT) decided to use the UNSAS as the framework for assistance and to use the Country Programme Action Plan (CPAP) as an internal document to guide implementation and not to go through the whole process. The CP is composed of eight outputs, which were designed to contribute to the UNFPA Strategic Plan (2008-2011) responding to the three programme components: Population and Development (PD), Reproductive Health and Rights, and Gender Equality. In 2012, the Country Programme was re-aligned to contribute to the UNFPA Strategic Plan (2012-2013), which abolished the programme components and brought to the fore a more integrated country programme. It is directly executed under the overall coordination of the Ministry of International Cooperation in each Somalia Zone, namely the Transitional Federal Government, Somaliland and Puntland Governments.

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2.1. Re-alignment of UNFPA Somalia Programme to UNFPA Global Strategy 2014-2017 and Somalia’s compact deal The UNFPA strategic plan, 2014-2017, focuses squarely on addressing the unfinished agenda of the Cairo ICPD declaration of 1994, with a particular concentration on sexual and reproductive health (SRH) and reproductive rights. In order to ensure that UNFPA Somalia strategies are in tandem with the global UNFPA strategic plan 2014-2017 and also responding to Somalia’s compact deal 2014-2016, the document identifies five approaches to support alignment. The country programme focuses on the following priorities: (a) decreasing maternal mortality; (b) managing population growth and the ‘youth bulge’; and (c) improving humanitarian preparedness and response. These priorities are addressed under three programme components: (a) reproductive health; (b) population and development; and (c) gender equality. It mainstreams the needs of youth and focuses on the empowerment of young women. 3.0 PURPOSE OF THE EVALUATION 3.1. Purpose of the CPE The purpose of the Country Program Evaluation is to (a) demonstrate accountability to stakeholders on performance in achieving results at country level and on invested resources; (b) support evidence-based decision making and (c) contribute important lessons learned to the existing knowledge-base on how to accelerate implementation and better redesign the next cycle of the country programme for Somalia among other uses. 3.2 The specific objectives of the CPE The specific objectives will be to: a) Provide an independent assessment of the progress achieved towards the expected outputs and outcomes set forth in the results framework of the 2nd country programme, and the contribution towards the realisation of the national outcomes, with special focus on:- o Determining whether planned activities were carried out as planned (effectiveness) and assess program performance (extent to which targets were achieved or not) o Examining programme implementation efficiency in achieving expected results o Assessing the relevancy and sustainability of the 2nd Cycle CP b) Review the overall co-ordination and partnership approach adopted during programme implementation. c) Identify innovative approaches towards programme implementation and lessons learnt or best practices identified including the extent to which UNFPA programmes integrated gender and rights-based approaches. d) Identify any challenges and impending threats the programme is facing and opportunities. e) Draw key lessons from past and current implementation arrangements to provide a set of clear and forward looking options leading to strategic and actionable recommendations for the next country programme cycle. 4.0 SCOPE OF THE EVALUATION • Time period: The CP evaluation will cover the period from 1st January 2011 to 30th April 2015. • Geographical coverage: The evaluation will cover all the three Zones where UNFPA-funded programmes are implemented (SCZ, Puntland, and Somaliland).

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• Programme aspects: The evaluation will look at the three technical areas of the UNFPA programme (Population and Development, Gender, Sexual Reproductive Health and Adolescents Youth, HIV/AIDS) in the three zones of Somalia. In addition for each thematic area, the evaluation will look at cross cutting aspects such as gender mainstreaming, coordination and partnerships. • Evaluation criteria: The evaluation will be based on four OECD/DAC criteria: Relevance, Effectiveness, Efficiency and Sustainability as well as on questions related to strategic positioning: Coordination with UNCT and Added Value. 4.1 Evaluation questions The evaluation team is asked to put together a list of evaluation questions (to be approved by the Evaluation Manager, in consultation with the ERG) addressing the following topics/issues: Relevance: 1. To what extent were the programme interventions consistent with the needs of the beneficiary populations and to what extent was it aligned with government priorities as well as with policies and strategies of UNFPA?

2. How well was the CPAP aligned with the ICPD actions and MDGs as well as with the UNFPA Strategic Plans? Effectiveness: 3. To what extent did the interventions supported by UNFPA in the field of reproductive health and rights contribute to (i) Improved access and utilisation of high quality maternal health and family planning services, including populations affected by humanitarian crisis (ii) Increased national and sub-national capacity to deliver integrated sexual and reproductive health services (iii) Increased priority on adolescents, especially on very young adolescent girls, in national development policies and programmes

4. To what extent have the interventions supported by UNFPA in the field of population and development contributed to (i) increased availability and use of data on emerging population issues at national and sub-national levels (ii) Strengthened national and sub-national capacity for production and dissemination of quality disaggregated data on population and development issues.

5. To what extent have the interventions supported by UNFPA in the field of gender contributed to: (i) Strengthened national and sub-national protection systems for advancing reproductive rights, promoting gender equality and non-discrimination and addressing gender-based violence; (ii) Increased capacity to prevent gender-based violence and harmful practices and enable the delivery of multisectoral services, including in humanitarian settings?

6. To what extent was the programme coverage (geographic; beneficiaries) reached as planned? Efficiency: 7. Was the programme implementation approach (funds, expertise, time, administrative costs, etc.) the most efficient way of achieving results?

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Sustainability: 8. To what extent are the development gains made under the UNFPA supported interventions in Somalia sustainable in terms of continuity in service provisions and partnerships integration of CP activities into the regular country and counterparts’ programming? Added value: 9. What has been the comparative strength of the UNFPA CO response to the Somalia context of protracted crisis and particularly in the areas of reproductive health, gender-based violence and population and development? Coordination: 10. To what extent has the UNFPA CO contributed to good coordination among UN agencies in the country, particularly in view of avoiding potential overlaps? 4.2 Evaluation ethics The CPE is to be conducted legally, ethically and with due regard for the welfare of those involved in evaluation, especially women, children, and members of other vulnerable and disadvantaged groups, and in accordance with the United Nations Evaluation Group ethical guidelines for evaluation, available at www.unevaluation.org/ethicalguidelines. 5.0 The Evaluation process and Indicative Timeframe The Somalia country programme evaluation will unfold in five phases: preparatory phase, design phase, field phase, reporting phase, and management response, dissemination and follow-up phase. Following the signing of a contract, the consultants should complete the assignment and produce the first draft of the report to the evaluation manager in accordance to the timelines above. The evaluation manager will coordinate the reviews by partners and Arab States Regional Office (ASRO) team. Comprehensive comments will be shared with the team of consultants after 10 working days following the submission. The final report should be received by the evaluation manager not later than 10 working days following submission of comments to the consultants. The report may be considered final depending on the satisfaction of the Evaluation Reference Group, or another round of comments could be submitted to the consultants. 6.0 METHODOLOGY The consultants are expected to use a mix of qualitative and quantitative methods and work with primary and secondary data sources. 6.1 Desk review: • Analysis of available data sources such as midterm evaluation report, needs assessment documents, audit report, progress reports, country office annual reports (COARs) monitoring template available at the country office and field offices and any other materials that the evaluator considers useful for this evidence-based assessment • Review of project documents such as Country Programme document, UNSAS, New Deal, including financial records available in the UN Nairobi Office • Review of policy documents and strategies at the CO level 6.2 Field Data collection • Interviews with relevant UNFPA programme staff at country office and field offices • Interviews with relevant implementing partners and project partner organisations (see Annex 1) • Interviews and focus group discussions with project beneficiaries and where possible; non-beneficiary population in target areas • Observations and informal interviews

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The detailed methodological approach will be designed by the selected evaluator and included in the inception report taking into consideration the following: - The CP evaluation design - Size and structure of targeted entities to be interviewed - The sampling method - Data collection tools and procedures - Data management and analysis - Selection of sites to host data collection

Methods may vary by project but should reflect the precise nature of the aspects under examination and the personal expertise. Apart from a preference for triangulation, the evaluators could consider existing data and published research.

It is highly possible that the Somali local language may be needed during data collection in cases where the targeted respondents do not have adequate English proficiency. If such a risk becomes a reality, then in order to standardize the formulation of the questions and avoid adhoc interpretation, the data collection tools will be translated into Somali.

5.2 Stakeholder involvement An inclusive approach, involving a broad range of stakeholders, should be taken. The evaluation will have a process of stakeholder mapping that would identify both UNFPA’s direct partners as well as stakeholders who do not work directly with UNFPA, but play a key role in a relevant outcome or thematic area in a national context. Relevant stakeholders should be involved at the different stage of the CPE including design, data collection, data analysis, reporting especially at the recommendation formulation process, debriefing, and dissemination (stakeholder workshop) as appropriate. The final evaluation report should describe the efforts made to include stakeholders in these processes and the positive consequences of these efforts.

7.0 THE EVALUATION TEAM The evaluation will preferably be conducted by an independent evaluation consultancy firm or, alternatively, by a team of independent evaluators if, for any reason, a firm cannot be identified. The selected firm should be legally registered, have past experience in carrying out similar evaluations, and have stable financial records for the last three years. In any case, the team will comprise of three consultants (three team members must have expertise to cover one of the thematic areas): a technical expert for each thematic programme area – reproductive health and adolescent and youth, population and development, and gender. The team members must appoint one of the members with broad evaluation expertise as the team leader. It should be ensured that interviews and focus group discussions will be possible both for men and women (especially when consulting beneficiaries) therefore gender balance among consultants should be taken care of as much as possible. In addition one of the team members must be fluent in spoken and written Somali language with extensive experience in conducting evaluations in Somalia. The data collection tools shall be translated into Somali Language before commencement of the data collection exercise. Considering the language challenges in Somalia, it will be possible that the key evaluation team hires local research assistants speaking Somali and with good experience in qualitative data collection, particularly FGDs facilitation and/or note taking.

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7.1 Competencies for the thematic consultants 1. Excellent analytical, writing and communication skills 2. Ability to work with a multi-disciplinary team of experts 3. Excellent problem identification and solving skills 4. Excellent written and spoken English Language skills. Knowledge of Somali an asset*. 5. Experience of operations and response to humanitarian/crisis an advantage 6. Familiarity with UN and/or UNFPA mandate an asset 7. Should be able to provide deliverables on time

7.2 Qualifications and experience of thematic consultants 1. Specialization and/or demonstrated knowledge on either reproductive health, population and development, or gender field 2. Minimum of five years of experience in conducting evaluations in reproductive health, population and development, or gender sectors

7.3 Roles and responsibilities of the thematic consultants 1. Contribute to the development of the design report as per UNFPA standards 2. Take charge of Evaluation components related to his thematic section of the country programme as relevant 3. Member of the evaluation team and as such, abides by the requirements and work plan validated by the team 4. Deliver timely quality reports related to his theme as relevant

7.4 Competencies for the Team Leader In addition to competencies for the thematic roles above the team leader must possess the following competencies: 1. Development sector background 2. Excellent analytical, writing and communication skills 3. Leadership and good management skills 4. Ability to work with a multi-disciplinary team of experts 5. Excellent problem identification and solving skills 6. Excellent written and spoken English Language skills.

7.5 Qualifications and experience of Team Leader 1. Minimum of 10 years’ experience in conducting/managing program evaluations 2. Experience in mainstreaming and management of cross cutting themes 3. Familiarity with the UNFPA work will be an added advantage 4. Experience in evaluating programmes/projects in fragile context 5. Proven knowledge of the country settings and priorities 6. Experience of operations and response to humanitarian/crisis an advantage

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7.6 Roles and responsibilities of the Team Leader The team leader will have primary responsibility for the timely completion of a high-quality evaluation that addresses all the items required in this TOR. He will specifically 1. Provide overall coordination and leadership to the evaluation team 2. Responsible of the assessment of one thematic programme area 3. Provide the inputs for quality aspects of the overall process 4. Compile the design report with the inputs from national consultants 5. Compile draft and final reports and deliver them on time, considering the quality aspects. 6. Responsible for debriefing the findings when required 7. Liaise with Evaluation Manager

8.0 Indicative Timeframe The number of working days required for the successful completion of this assignment is 90 days spread over a period of 4-6 months. Phases/deliverables Dates Phase 1: preparatory phase June 2014 – April 2015 Finalization of the ToR and recruitment of experts

Phase 2. Design phase April 2015 Preparation, review of documents leading to submission of the design report, including travel days and expected start date Phase 3. Field Phase May 2015 Phase 4. Reporting phase June - September 2015 - 1st draft final report July 2015 - Stakeholders workshop August - 2015 - Final report September-2015 Phase 5: Management response, dissemination phase October 2015

9.0 Duration of contract and Remuneration The 90 working days required for the successful completion of this assignment will be indicatively spread over among the evaluation team members as follows:

Technical Experts Deliverables Reproductive Health Population & Genre & adolescent and youth Development GBV Design report 4 3 3 Field phase 15 10 10 Data analysis and draft report 10 8 8 Final report and annexes 2 2 2

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Dissemination workshop 1 1 1

Total 32 24 24

In addition to the number of days required for its technical thematic area, 10 days will be added to the team leader to allow proper coordination of the team of evaluators, ensure quality and finalisation and submission of all deliverables. The allocation of days in the table above is indicative and as such, final repartition should be done by the team of consultants following the development of the design report. However, the total number of days should not exceed 90. 10.0 EVALUATION MANAGEMENT A management structure will be established and will include: • An Evaluation Reference Group (ERG) • Evaluation Manager The specific roles and functions of the ERG as provided by the UNFPA Policies and Procedure Manual is to provide guidance and constructive feedback on the products of the evaluation, hence contributing to both the quality and utility of the exercise. Throughout the process of the evaluation, the ERG will regularly meet from planning phase to implementation phase. They will be expected to discuss and comment on notes and reports produced by the evaluation team. Members of the ERG are also expected to facilitate the evaluation team's access to information sources and documentation on the activities under evaluation. Specific roles include; • Provides input to the TOR and to the selection of the team of evaluators • Contributes to the formulation of the evaluation questions • Provides comments on the design report • Contribute to the selection of the evaluation team • As much as possible, facilitates access of evaluation team to information sources (documents and interviewees) to support data collection • Provides timely comments on the draft • Ensure the final draft meets the UNFPA quality standards • Present final document to the UNFPA Somalia CO Evaluation Manager

The ERG membership will include members drawn from Ministries (FGS, Somaliland and Puntland) to be appointed by Authorities, UNFPA Somalia Country Office staff Members appointed by the Country

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Representative, Representatives of other UN agency working closely with UNFPA Somalia in delivery of services, Representatives from the leading Partner(INGO/LNGO’s) in Somalia and Representative of UNFPA Arab States Regional Office. Under the overall guidance of the UNFPA Representative, the Monitoring and Evaluation Analyst will act as the Evaluation Manager. The ERG and the Evaluation Manager will provide oversight to the evaluation. Supported by the Evaluation Manager, the ERG will regularly meet as needed to undertake the main oversight activities such provide technical support, monitor progress and quality of evaluation activities, and review and comment on drafts documents.

The UNFPA Somalia country office, with the support of implementing partners, will provide the logistical support for the overall evaluation process. 11.0 DELIVERABLES The selected consultant team will submit the following deliverables: 11.1. Evaluation Deliverables: The Consultant will prepare an evaluation draft design report and a final evaluation design report that will describe the evaluation and include evaluator’s findings and recommendations to the best approaches of conducting the evaluation. The evaluation team will be asked to make an oral presentation of the design report to UNFPA and its stakeholders (through a teleconference or a local team). The Evaluation Manager will coordinate the review of the inception report, compile and summarize comments from the ERG members, the Regional M&E adviser and the Evaluation Office. He will provide the comprehensive written comments on the design report to the team within 30 days (please see annex 3 for design report outline). UNFPA’s approval of the design report is required before any field work can be initiated.

DELIVERABLE CONTENT TIMING RESPONSIBILITIES

Inception Report Evaluator provides Evaluator clarifications on April 2015 methodology, tools, work schedule Debriefing Initial Findings June 2015 Evaluator needs to carry out a workshop validation session for UNFPA Somalia’s partners and Programme staff immediately after the field data collection and before leaving the country. Draft of the Final Full report August2015 Evaluator sends the draft of the final Report306 report to the UNFPA Somalia. The Evaluation Manager shares the draft report with the Evaluation Reference

306 the evaluation report should not be shared outside of UNFPA before it is final

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Group for comments.

Final Report Revised report September The Evaluator submits a final report 2015 incorporating UNFPA staff and implementing partners comments Power point Not more than 20 October presentation slides, to be 2015 summarizing the submitted together key findings, with the final report conclusions and and to be used for recommendations dissemination workshop.

These deliverables are to be: § Prepared in English § Submitted to UNFPA Somalia electronically via e-mail § Submitted in official hard copy format (2 copies) Payment modalities and specifications Percentage Milestones 10percent Following the submission and approval of the inception report to UNFPA and ERG 40percent After the 1st comprehensive draft of the final evaluation report has been submitted and approved by UNFPA Somalia and the ERG 50percent After the final version of the final evaluation report has been submitted and approved by UNFPA Somalia and the ERG

Evaluation Implementation Arrangements UNFPA Somalia shall provide prior arrangements of relevant implementing partner, stakeholders, concerned government officials or beneficiaries for interviews. However the evaluator must inform UNFPA Somalia and the implementing partners in a timely manner when s/he intends to collect information from the respondents at field and office level. Application Process Applicants are requested to send their applications by email to [email protected] Applicants are requested to submit their: 1) CV highlighting their experiences and academic qualifications. UNFPA SOMALIA applies a transparent selection process that will take into account competencies and experience of the applicants as well as their financial offers. 12.0 DISSEMINATION AND USE OF EVALUATION RESULTS As for the dissemination of the final evaluation report, the following should be considered: • Upload to UNFPA docushare. • The evaluation report to be printed and the hardcopy with a snapshot of findings and recommendations will be distributed among relevant stakeholders.

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• The report including key findings and recommendations will be shared electronically among the stakeholders and the report will be uploaded to the UNFPA Somalia website. • Dissemination meetings will be conducted at national level and, when appropriate, at individual level. Management responses will be prepared for each of the recommendations using the standard UNFPA management response tool and they should be uploaded into central document repository within one month of accepting the final report of an evaluation. Recommendations will be added collaboratively with relevant stakeholders. The Evaluation Manager and UNFPA Representative drafts the management response, circulates the response together with the evaluation report to the relevant partner(s) and convenes a meeting to discuss and agree on the management response. (The required approval will be obtained from the key stakeholders and partners before finalizing). UNFPA Somalia country office will prepare a management response monitoring checklist progress of implementing CPE recommendations.

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13.0 ANNEXES Annex 1: Documents to be consulted The following documents will be shared as part of the desk review: • United Nations Somalia Assistance Strategy (UNSAS) including monitoring and evaluation framework • Reproductive Health Strategy • Second Country Programme Document (CPD) • Second Country Programme Action Plan (CPAP) • Annual Work Plans • Country Office Annual Reports (COAR) 2011-2014 • Realignment Strategy Document • Midterm Review Document • Evaluation Report on Humanitarian Response Project • AWP progress reports • Audit reports • Financial expenditure reports (face forms) • UNFPA Evaluation Guidelines • Norms and Standards for Evaluation in the UN System • UNEG Code of Conduct for Evaluation in the UN System • UNEG Ethical Guidelines for Evaluation

Annex 2: Reporting guideline UNFPA evaluation report should use the following template: EXECUTIVE SUMMARY 2-4 pages max CHAPTER 1: Introduction 5-7 pages max 1.1 Purpose and objectives or the Country Programme Evaluation 1.2 Scope of the evaluation 1.3 Methodology and process CHAPTER 2: Country context 5-7 pages max 2.1 Development challenges and national strategies 2.2 The role of external assistance CHAPTER 3: UN / UNFPA response and programme strategies 5-7 pages max 3.1 UN and UNFPA response 3.2 UNFPA response through the country programme 3.2.1 Brief description of UNFPA previous cycle strategy, goals and achievements 3.2.2 Current UNFPA country programme 3.2.3 The financial structure of the programme CHAPTER 4: Analysis of the programmatic areas 20-30 pages max 4.1 Reproductive Health and Adolescent and Youth 4.1.1 Relevance 4.1.2 Effectiveness

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4.1.3 Efficiency 4.1.4 Sustainability 4.2 Population and Development 4.2.1 Relevance 4.2.2 Effectiveness 4.2.3 Efficiency 4.2.4 Sustainability 4.3 Gender 4.3.1 Relevance 4.3.2 Effectiveness 4.3.3 Efficiency 4.3.4 Sustainability CHAPTER 5: Strategic positioning 5-10 pages max 5.1 Corporate strategic alignment 5.2 Strategic alignment 5.3 Responsiveness 5.4 Added value CHAPTER 6: Assessment of the Monitoring & Evaluation system 4- 8 pages max 6.1 The Country Office Monitoring and Evaluation (M&E) system 6.2 Support to national partners’ capacity in terms of M&E systems CHAPTER 7 Conclusions and recommendations 10–15 pages max 7.1 Main conclusions 7.1.1 Strategic level 7.1.2 Programmatic level 7.1.3 Transversal aspects 7.2 Main recommendations 7.2.1 Strategic level 7.2.2 Programmatic level 7.2.3 Transversal aspects (Total number of pages) 60 – 90 pages ANNEXES Annex 1 Terms of Reference Annex 2 List of persons / institutions met Annex 3 List of documents consulted Annex 4 The evaluation questions Annex 5 The evaluation Matrix

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Annex 2: Summary of Findings of UNFPA Somalia 2nd CP Implementation Results (2011-2015)

Component Result Indicator Baseline Achievement by Comments and Target December 2015 by 2015 Reproductive Health Outcome 1: Increased demand for, access to and utilisation of equitable, improved reproductive health services, including in settlements for internally displaced people Output 1: Improved health- Number of obstetric Baseline 534 cases repaired Target adjusted from 300 to 400 cases and it was surpassed by care delivery to reduce fistula cases successfully N/A the end of the year. maternal and neonatal repaired at supported mortality and related sites Target morbidity 400 Number of midwifes Baseline 388 midwives 442 are in class by the time of evaluation. Target will be trained according to 250 completed training surpassed. ICM-WHO standards and graduated Target 400 EmONC needs Baseline Yes A costed national action plan developed in January 2015 to assessment in place to 0 scale up maternal and new-born and approved. develop a costed national action plan to Target scale up maternal and new-born health services 3 Functional Logistics Baseline Yes UNFPA technically assisted in development of the LMIS tools, management 0 approved by all the three MoHs and partners trained on the information systems in tools. UNICEF and WHO have also agreed to harmonize the Somaliland, Puntland Target tools with their data collection tools and supported by other and South-Central Zone 1 stakeholders. for forecasting and Implementation to begin in Q1 2016. monitoring RH Commodities

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Component Result Indicator Baseline Achievement by Comments and Target December 2015 by 2015 Output 2: Increased Existence of guidelines, Baseline Yes Guidelines, protocols and standards for health care capacity of government, protocols and standards 0 workers for the delivery of quality sexual and community-based and non- for health care workers reproductive health services for adolescents and youth governmental organisations for the delivery of Target developed and exist in Somalia to offer high-quality, quality SRH services for 1 comprehensive sexual and adolescents and youth reproductive health Existence of integrated Baseline The Somalia SRH Strategic Action plan 2011 – 2015 exists and services, education and national SRH action plan 0 guides implementation of the CP’s RH component information for young people, with a focus on Target young people who are most 1 at risk

Number of outlets Baseline 3 Target adjusted from 5 to 3 during alignment. providing youth-friendly 0 services Target achieved. Target 3 Population and Development CP Outcome 2: Population dynamics Strengthened national policies and international development agendas through integration of evidence-based analysis on population dynamics and their links to sustainable development, sexual and reproductive health and reproductive rights, HIV and gender equality

Output 1: Strengthened Population Estimation Baseline The PESS completed and launched by the Federal Government capacities of selected Survey completed with 0 Yes of Somalia. At the time of the evaluation further analysis was sectoral ministries and the subsequent data still being done for various parameters of importance partner organisations to dissemination and use Target collect, analyse, disseminate and utilise disaggregated population data for planning Yes and delivering humanitarian, recovery and

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Component Result Indicator Baseline Achievement by Comments and Target December 2015 by 2015 development assistance

Existence of databases in Baseline Ongoing This is on course once the PESS data analysis and disaggregated three zones with 0 by regions is completed population-based data accessible by users Target through web-based 3 platforms facilitating mapping of socio- economic and demographic inequalities Evidence of UNFPA Baseline Ongoing UNFPA has trained government staff on population-based data supported technical 0 and continues to support them in strengthening their statistical assistance on the use of capacity to be able to apply in assessment. population-related data Target and support for assessments including 3 during emergencies Output 2: Improved systems Existence of scientifically Baseline Done307 for generating, analysing sound monitoring and 1 and disseminating evaluation procedures in disaggregated population support of sexual and Target and related data, with a reproductive health, and 3 focus on improving the adolescents and youth monitoring of maternal programmatic health at zonal and sub- interventions zonal levels in order to

307 Somalia COAR 2015

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Component Result Indicator Baseline Achievement by Comments and Target December 2015 by 2015 inform interventions in this area. Number of high-quality Baseline 7 Seven volumes of the national reports on utilizing data 0 Analytical reports have been drafted. Consolidated reports for to measure the Somaliland, Puntland and Banadir have also been prepared. attainment of country Target programme outputs and 3 to monitor maternal mortality and morbidity

Gender Equality Outcome 3: Advanced gender equality, women’s and girls’ empowerment, and reproductive rights, including for the most vulnerable and marginalized women, adolescents and youth

Output 1: Increased Existence of a Baseline UNFPA has facilitated establishment of 12 inter-agency GBV advocacy and community functioning inter-agency 0 Yes working groups (3 in Puntland, 8 in South Central and 1 in engagement to promote the gender-based violence Somaliland zones) reproductive health and coordination body as a Target rights of women and result of UNFPA Yes adolescent girls and to guidance and leadership eliminate harmful practices affecting maternal health

Number of regions and Baseline 240 UNFPA has made progress in addressing FGM/C amid socio- communities supported 0 cultural and religious challenges. The gains made, especially in by UNFPA Somalia that Puntland with religious leaders, and other regions of the declare the Target country can form learning points for cascading and can be abandonment of female 300 utilised to address this in the other areas including rural

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Component Result Indicator Baseline Achievement by Comments and Target December 2015 by 2015 genital communities mutilation/cutting (FGM/C);

Gender-based violence Baseline Yes SRH programme integrated GBV prevention, protection and prevention, protection N/A response through revision of the Midwives training curriculum and response integrated to include FGM/C, and provision of minimum initial service into SRH programmes Target package (MISP) under SRH interventions during emergencies

Yes Output 2: Enhanced systems Existence of functioning Baseline Yes UNFPA has supported establishment of GBVIMS reporting and mechanisms to prevent tracking and reporting N/A system in Somalia and partners trained on utilisation of the and protect against all system to follow up on system and are currently using it on a monthly basis both at Zonal and National levels. forms of gender-based the realisation of Target violence, using a human reproductive rights and Yes rights perspective, including addressing gender-based in emergency and post- violence conflict situations

. Number of institutions Baseline 11 11 one-stop centres established in Somalia (2 in Puntland and 9 (one-stop centres) 0 in South Central Zones) providing services to survivors of gender- Target based violence 6

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Annex 3: CP Evaluation Matrix RELEVANCE Evaluation Question (EQ) 1a: To what extent were the Reproductive Health interventions consistent with the needs of the beneficiary populations and to what extent was it aligned with government priorities as well as with policies and strategies of UNFPA? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection The RH (MNCH, FP, ASRH) • The existence and evidence • CPD, CPAP, AWPs • Interview with UNFPA staff interventions addressed the of wide consultations during • Needs assessment reports and • Literature review needs of the targeted needs assessments, studies, Evaluations • Interview with MoH staff beneficiaries evaluations that identified • Specific Government strategies • FGDs with beneficiaries needs and lessons learned (for identified priorities) • Site visits to the programme prior to programming and • Key Informants from areas during the CP, updated Government and Partners periodically to guide the • Beneficiaries programme, including design • UNSAS and ISF • Separate components are The CP design was aligned with integrated in planning with the government priorities and cross cutting aspects such as UNFPA Policies and strategies gender and equity • The choice of target groups for UNFPA-supported RH interventions is consistent with identified and evolving needs as well as national priorities • Extent to which the RH interventions supported by UNFPA targeted most

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vulnerable as needed (Youth, Women of Reproductive age and Lactating mothers) • Extent to which the targeted people were consulted in relation to programme design and activities throughout the programme . Evaluation Question (EQ) 1b: To what extent were the Population and Development interventions consistent with the needs of the beneficiary populations and to what extent was it aligned with government priorities as well as with policies and strategies of UNFPA? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection The Population and Development • The existence and evidence • CPAP, CPAP AWPs • Interview with UNFPA staff interventions addressed the of wide consultations during • Consultative reports • Literature review needs of the targeted needs assessments, studies, • Training reports • Interview with Government beneficiaries evaluations that identified • PESS report staff needs and lessons learned • Government strategies (for prior to programming and identified priorities) during the CP, updated • Key Informants from periodically to guide the Government The CP design was aligned with programme, including design • UNSAS and ISF the government priorities and • Separate components are UNFPA Policies and strategies integrated in planning with cross cutting aspects such as gender and equity • Extent to which the PD interventions supported by UNFPA targeted most

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vulnerable as needed (People of Concern) • Extent to which the targeted people were consulted in relation to programme design and activities throughout the programme

Evaluation Question (EQ) 1c: To what extent were the Gender interventions consistent with the needs of the beneficiary populations and to what extent was it aligned with government priorities as well as with policies and strategies of UNFPA? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection The CP’s Gender component • The existence and evidence • CPD, CPAP AWPs • Interview with UNFPA staff interventions addressed the of wide consultations during • COARS • Literature review needs of the targeted needs assessments, studies, • Needs assessment reports and • Interview with implementing beneficiaries evaluations where needs and Evaluations partners, including lessons learned prior to • Government strategies (for government programming and during the identified priorities) • FGDs with beneficiaries CP to guide the programme, • Key Informants from • Site visits to the programme including design Government and Partners areas The CP design was aligned with • Separate components are • Beneficiaries the government priorities and integrated in planning with • UNSAS and ISF UNFPA Policies and strategies cross cutting aspects such as gender and equity • The choice of target groups for UNFPA-supported interventions is consistent with identified and evolving needs as well as national

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priorities • Extent to which the interventions supported by UNFPA targeted most vulnerable as needed • Extent to which the targeted people were consulted in relation to programme design and activities throughout the programme . EFFECTIVENESS EQ 2: How well is the CPD aligned to the ICPD actions as well as with the UNFPA Strategic Plans and how well is the CPAP delivering the CPD? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection • ICPD goals are reflected in • CPD • Literature review the CPAP and component • CPAP • Interview with UNFPA staff The CPAP is delivering the CPD activities • AWPs • Interview with government (reflection of the CPD) • The CPAP sets out relevant • UNFPA Strategic Plans 2011- staff goals, objectives and 2015; 2014 – 2017 • Interview with other UN staff activities to develop national • Joint and collaborative capacities programme documents The CPD is aligned to the UNFPA • Plans are executed as Strategy (ICPD actions) planned • Extent to which South-South (Especially for the PESS, Gender equality) cooperation has been mainstreamed in the country programme

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• Extent to which gender equality and women’s empowerment have been mainstreamed • Extent to which specific attention has been paid to youth in the programme • Extent to which plans are executed within the EFFECTIVENESS EQ 3: To what extent did the interventions supported by UNFPA in the field of reproductive health and rights contribute to (i) Improved access and utilisation of high quality maternal health and family planning services, including populations affected by humanitarian crisis (ii) Increased national and sub-national capacity to deliver integrated sexual and reproductive health services (iii) Increased priority on adolescents, especially on very young adolescent girls, in national development policies and programmes Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection The UNFPA-supported • Timeliness of the CO response to • COARs • Literature review, including interventions in RH and Rights the emergency situations • AWPs financial documents contributed to improved access especially during displacements • CPAP • Interview with IPs and utilisation of high quality • Evidence of availability of RH • Evaluation reports • Interview with UNFPA staff maternal health and family service in health facilities • Assessments • Interview with government planning services, including • Evidence of capacity strengthening • Government RH policies staff populations affected by of RH program management and strategies/ plans. • Field visits humanitarian crisis • Reproductive health emergency • Training modules and preparedness and response plan reports. have been developed in • Field visits to health consultation with concerned facilities national and international partners • Monitoring reports • CO capacity to adjust the • Training workshop

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objectives of the CPAP and the reports and training AWPs materials • Integration of Essential reproductive health services package (including Emergency obstetric and neonatal care, and post unsafe abortion care) health care services. • Extent to which the response was adapted to emerging needs, demands and national priorities • Extent to which the reallocation of funds towards new activities (in particular humanitarian) is justified • Extent to which the CO has managed to ensure continuity in the pursuit of CPAP objectives while responding to emerging needs and demands The UNFPA-supported • Evidence of capacity strengthening • Government RH plans Site visits interventions in RH and Rights on the government services • Site visits to health Interviews with beneficiaries increased national and sub- providers on RH facilities national capacity to deliver • Evidence of integrated of RH in • Training reports on RHCS integrated sexual and Government Health Plans and LMIS reproductive health services • Evidence on availability of SRH services in health facilities • Strengthening and standardisation of the logistics management information system

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The UNFPA-supported • Extent to which specific attention • COARs • Literature review interventions in RH and Rights has been paid to the youth in the • CPAP • Data analysis increased priority on programme • Monitoring reports • FGDs with beneficiaries, adolescents, especially on very • Sexual and reproductive health • Health records including Y-PEER members young adolescent girls, in and rights outreach services • RH strategic plans by the • Interviews with the health national development policies tailored to the needs of special governments service providers in facilities and programmes population groups are provided by • Interview with UNFPA staff 2015 • Visit to health facilities • Evidence of usage of the hygiene kits and RH information by the IDPs in settlements • Evidence that the training materials and training sessions for health workers have contributed to increased demand for RH services EQ 4: To what extent have the interventions supported by UNFPA in the field of population and development contributed to (i) increased availability and use of data on emerging population issues at national and sub-national levels (ii) Strengthened national and sub-national capacity for production and dissemination of quality disaggregated data on population and development issues. Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection UNFPA’s population and • Policy frameworks and • AWPs Literature review development interventions protocols for production and • COARs Interview with government staff contributed to increased integration of population • Sectoral Plans Other agencies involved in availability and use of data on dynamics, reproductive • Annual reports from NPC and development interventions in emerging population issues at health and gender in CBS Somalia national and sub-national levels development planning are in • Need assessment, evaluation place and operational. and monitoring reports • Extent of implementation of • Planning Staff and Publications

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plan for capacity • Relevant Stakeholders strengthening on population and policy issues; • Formulation and operationalisation of Policies for Development of Statistics at national and regional levels; • Difference in contributions of professionals and units trained to apply integration methods and tools; • Gender disaggregated data produced, analysed and utilised at national and sectorial levels; • In-depth, policy-oriented studies released • Number of national and sectorial plans incorporating population, reproductive health and gender issues; • Inter-linkages between data producers and data users operational UNFPA’s population and • Large-scale population • COARs • Interviews with policy makers development interventions surveys conducted, • AWPs (government and professional contributed to strengthened disseminated and results • Monitoring reports bodies, where applicable) national and sub-national utilised for planning; • Sector plans and reports • Interview with other UN

XXVII capacity for production and • Database for planning and • Site visits agencies and NGOs dissemination of quality monitoring established at • Governments staff and • Literature review disaggregated data on national and state levels; professional bodies population and development • Government staff and other issues. Professionals trained to apply integration methods and tools; • Statistics units set up and strengthened at government ministries

EQ 5: To what extent have the interventions supported by UNFPA in the field of gender contributed to: (i) Strengthened national and sub- national protection systems for advancing reproductive rights, promoting gender equality and non-discrimination and addressing gender-based violence; (ii) Increased capacity to prevent gender-based violence and harmful practices and enable the delivery of multi-sectoral services, including in humanitarian settings? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection UNFPA’s gender interventions • Evidence of Gender policies • Agencies in various gender task • Interviews with agencies in have contributed to • Evidence of capacity forces in Somalia (FGM and various gender task forces strengthened national and sub- strengthening of various GBV) and working groups in national protection systems for stakeholders by UNFPA • Gender policies Somalia (FGM and GBV) advancing reproductive rights, • Establishment of task forces • Government gender plans • Interviews with religious promoting gender equality and to oversee implementation of • COARs leaders non-discrimination and gender-based violence cases • Monitoring reports • Interviews with government addressing gender-based • Establishment of monitoring • Training reports staff violence systems for GBV cases • Minutes of task forces • Interview with UNFPA staff • Percentage of responsible • Literature review parties identified in the

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national action place who report their GBV prevention activities (CPAP indicator)

UNFPA’s gender interventions • Evidence of increased • CPAP and Strategic Plans • Literature review have contributed to increased national and local level • AWPs • Interviews with UNFPA staff capacity to prevent gender-based dialogue and activities aimed • National policy/strategy • Interviews with implementing violence and harmful practices at improving the protection • documents partners and enable the delivery of multi- of women from violence • Needs assessment studies • Interviews/Focus groups with sectoral services, including in • Evidence of capacity • Evaluations beneficiaries humanitarian settings development of CSOs to • Implementing Partners in • Field visit to GBV centres and partner with national and Government, Women’s and meeting with service regional government on Youth NGOs providers advancement of women and • Training reports • Field visit to women centres to combat GBV • Gender policies and GBV in selected IDP settlements • Training programmes for reduction Plans and groups interviews with service providers within the beneficiaries government and NGOs to • Interview and group combat GBV discussion with trainers and • Existence of programmes partner NGOs involving men and young • Group discussion with GBV people for combating GBV support group • Evidence of effective monitoring of the cases on GBV EQ 6: To what extent was the programme coverage (geographic; beneficiaries) reached as planned? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection

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The programme reached or is • Achievements for each of the • AWPs • Document review and analysis likely to reach its targeted six outputs • CP reports (RH, Gender and • Interviews with UNFPA staff outputs for each component • Facilitating factors/reasons to PESS) • Interview with partners (geographic; beneficiaries) as the achievement and/or non- • CPAP planned achievement of the results • COARs • Performance monitoring plans

EFFICIENCY EQ 7: Was the programme implementation approach (funds, expertise, time and administrative costs) the most efficient way of achieving results? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection • The planned inputs and • UNFPA staff (including • Review of financial resources were received as finance/administrative documents The Programme Implementation set out in the AWPs and departments) • Interviews with UNFPA Staff Approach was the most efficient agreements with partners or • Partners (implementers and • Interviews with government way of achieving results a regular basis direct beneficiaries) staff/health facilities • The resources were received • Monitoring reports • FGDs with beneficiaries of in a timely manner according • Audit reports funding (including NGOs) to project time lines and • CP reports (Progress reports) plans • Review reports • Budgeted funds were disbursed in a timely manner The monitoring, evaluation, • Inefficiencies were corrected reporting and accountability as soon as possible systems adequate to enable (programme monitoring and UNFPA to demonstrate evaluation decisions) programme results • Evidence that the resources provided by UNFPA triggered

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the provision of additional resources from the government levels and from communities • Leveraged resources appropriate to planned program outputs

SUSTAINABILITY EQ 8a: To what extent are the development gains made under the UNFPA supported interventions in Somalia sustainable in terms of continuity in service provisions and partnerships integration of CP activities into the regular country and counterparts programming? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection UNFPA has been able to support • Evidence of addressing • COARs • Interviews with implementing its partners in developing their sustainability at the planning • AWPs partners capacities and establishing phase. • CPAP • Interviews with health care mechanisms to ensure ownership • Capacity strengthening • CPD providers and the durability of effects in covered broad spectrum of • Programme Progress reports • Interview with ministry staff the areas of Gender Equality, RH partners’ needs. • Financial reports • Interviews/Focus groups with and PD • RH care providers acquired • Key Informants from beneficiaries necessary competencies to Government and NGOs • Site visits deliver quality services. • Training reports • Evidence of commitment of • the implementing partners in support of UNFPA supported interventions • Allocation of funds from national sources to maintain equipment, and continue

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updating information. • Commitment of government for application of laws policies and strategies related to GBV. • Extent of ownership of NGOs and partners for UNFPA programme related results • Evidence for capacities of NGOs and partners to continue training and engagement with communities addressing gender equality and GBV issues. • Program monitoring systems in place and functional. • Program coordination mechanisms with UN agencies, government and partners are established and functional.

EQ 8b. To What extent is UNFPA CP potential to contribute to the MDGs? Assumption to be assessed Indicators Sources of Information Methods of Data Collection The CP Intervention are likely to • Data related to the related • Programme M&E reports • Document review contribute to the MDGs MDGs are in place • Programme progress report • UNFPA staff interview • There is progress made in the • CPAP • Government interview MDGs from the inception to • CPD • FGDs with Beneficiaries

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the time of evaluation • Somalia MDG report • Program monitoring systems in place and functional. • Program coordination mechanisms VALUE ADDITION EQ 9: What has been the comparative strength of the UNFPA CO response to the Somalia context of protracted crisis and particularly in the areas of reproductive health, gender-based violence and population and development? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection UNFPA had comparative • Comparative strengths of • CPAP and COARs • Interviews with UNFPA staff strengths in response to the UNFPA, both corporate and • Reports from partners and • FGD with government Somalia context of protracted in-country, particularly in other agencies beneficiaries crisis and in the areas of RH, comparison to other UN • UNFPA strategies • Literature review and analysis Gender and PD. agencies, have been • Government partners • Interviews with other UN identified and built upon • UN agencies agencies • The results observed in • Interviews with government programmatic areas that partners have been achieved with UNFPA’s contribution are described. • The perceptions of national stakeholders in regard to UNFPA’s added value have been collected and used for future programming • Perception by the stakeholders of the comparative strengths of

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UNFPA • Evidence that UNFPA comparative strengths are reflected in its cooperation with other development partners COORDINATION EQ 10: To what extent has the UNFPA CO contributed to good coordination among UN agencies in the country, particularly in view of avoiding potential overlaps? Assumption to be assessed Indicators Sources of Information Methods and Tools of Data Collection The UNFPA CO contributed to • Evidence of active • CPAP • Document review good coordination among UN participation in UN working • UN Agencies • Interview with UN agencies agencies in the country, groups • UNFPA Country Office having joint programmes with particularly in view of avoiding • Evidence of the leading role • Monitoring/Evaluation reports UNFPA and NGOs intervening potential overlaps played by UNFPA in the of joint programmes and on emergency response working groups and/or joint projects • Interview with UNFPA Staff initiatives corresponding to • Minutes of working groups • Interview with implementing its mandate areas • Programming documents partners • Evidence of exchanges of regarding UN joint initiatives information between UN agencies • Evidence of joint programming initiatives (planning) • Evidence of joint implementation of Programmes • Evidence of overlaps and/or

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absence of overlaps between UNFPA interventions and those of other agencies • Evidence that synergies have been actively sought in the implementation of the respective programmes of UN agencies

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Annex 4: List of Persons Interviewed Name of Respondent Organisation/ Institution Title Abdirisak Yousuf Admas University Student (Y-PEER Beneficiary) Samira Mohamed Ahmed Admas University Student (Y-PEER Beneficiary) Mohamed Bashir ANPPCAN – Jowle MWH Head of Office Ahmed Hassan CCM, Puntland Programme Officer Nikolai CCM, Puntland Programme Coordinator Dr. Asif CCM, Puntland Programme Officer Dr Edna Adan Edna Adan University hospital Director Dr. Jesus Ganzalez Edna Adan University hospital Visiting Obstetrician and Gynaecologist Abdisamal Ahmed Jama Garowe General Hospital Director Tedesse Kassaye Health Poverty Action Africa Programme Director Woldetsadik Khadar Abdilahi Mohamed Health Poverty Action Programme Manager Ridiwan Mohamed IRADA Director Ahmed Yassin IRADA Research and Com. Manager Ahmed Celabe IRADA Admin & Finance Officer Timira Abdirahman Sheikh Maato Kaal One Stop Centre Coordinator Aniso Abdulfatah Maato Kaal One Stop Centre Case Manager Mohamoud Saad Mohamed Jama Maato Kaal One Stop Centre Psychosocial Counsellor Fadumo Mohamed Faliye Maato Kaal One Stop Centre Case Worker Faisal Mahdi Ali Maato Kaal One Stop Centre Legal Aid Support Juweria Jama Geele Maato Kaal One Stop Centre Case Worker Ahmed Abdallah Tigana Ministry of Labour, Youth & Sports DG – Youth and Sports - Puntland Mohamed Abdullah Hassan Ministry of Labour, Youth & Sports UNFPA Focal Point - Puntland Dr. Osman Hussein Ministry of National Planning and Post-PESS Coordinator Warsame Development – Somaliland Ahmed Elmi Muhumad Ministry of Planning - Federal Director General of National Government of Somalia Statistics Hussein Elmi Gure Ministry of Planning - Federal Deputy DG Government of Somalia Ministry of Youth and Sports Director of Finance and Admin (Acting DG)

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Name of Respondent Organisation/ Institution Title Omer Ali Abdi Ministry of Youth, Sports and Director of Youth Dept. Tourism - Somalia Habibo Mohamed Warsame Mogadishu Midwifery Training Student: Qualified nurse Institute midwife training Hodan Farah Ismail Mogadishu Midwifery Training Student: Qualified nurse Institute midwife training Sadiyo Mohamed Hassan Mogadishu Midwifery Training Student: Qualified nurse Institute midwife training Luul Ahmed Warsame Mogadishu Midwifery Training Student: post-basic nurse Institute midwife training Maryan Mohamed Abdi Mogadishu Midwifery Training Student: post-basic nurse Institute midwife training Zahra Mohamed Abdi Mogadishu Midwifery Training Student: post-basic nurse Institute midwife training Halimo Mohamed Ali Mogadishu Midwifery Training Midwifery Teacher Institute Ardo Adan Mohamed Mogadishu Midwifery Training Midwifery Teacher Institute Dr. Abdirizack Yusuf Ahmed MoH - Federal Government of Deputy DG (Ag. DG) Somalia Dr. Abdikadir Welil Afra MoH - Federal Government of RH Advisor Somalia Abdinasir Elmi MoH, Puntland EHS Manager Idris Abdullahi MoH, Puntland RH Manager Abdirizak Abshir MoH, Puntland Director of PHC (Ag. DG) Dr. Ali Sheikh Omar MoH, Somaliland Director of Family Health Dr. Idris Noor Mohamed MoH, Somaliland Child Health Section Dr. Abdullahi Hargeisa Group of Hospitals Ag. Director Ahmed Dahir Hargeisa Group of Hospitals Administrator Mohamed Bashir Jowle Maternity Centre Officer-In-Charge Hamdi Noor Jowle Maternity Centre Nurse-In-Charge Awale Mohamed MoLSA - Somaliland Director of Planning Abdifatah Alinoor Naimo Haji Abdi School of Nursing Vice Principal Ardo Siid Mohamed Haji Abdi School of Nursing Director of School Yussuf Noor Haji Abdi School of Nursing Tutor Amina Osman Ali Haji Abdi School of Nursing Student

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Name of Respondent Organisation/ Institution Title Fauma Mohamed Ahmed Puntland Midwifery Association Secretary General (PAM) Abdishakur Adam MoLSA – Somaliland Head of Gender Ahmed Abdullah Tigana MOLYS - Puntland DG, Youth and Sports Mohamed Abdullah Hassan UNFPA - Puntland UNFPA Focal Point Hashim Sheikh Abdinoor MoPIC – Fed Gov’t of Somalia PC – National Statistics Mohamed Abdinoor M. MoPIC – Fed Gov’t of Somalia Regional Coordinator Nur Ahmed Wehliye MoPIC – Federal Government of PESS Coordinator Somalia Dr. Abdi Mohamoud Ali MoPIC – Puntland Snr. Statistics Advisor Abdinasir Ali Dahir MoPIC – Puntland Director of Statistics Khadar Mohamed Gahayr MoPND - Somaliland Demographer Consultant Abdirizack Nouh M. Isse MoWDAFA – Puntland Director General Abdijabal Bashir MoWDAFA – Puntland Admin and Finance Officer Abdirizack Hassan Farah MoWDAFA – Puntland UNFPA Finance Focal Point Kemal Abdijabar Rashid MoWDAFA - Puntland UNFPA Gender Consultant Focal Point Saadia Mohamed Nur MW&HR – Federal Government of Director - Gender Somalia Mohamed Omar Nur MW&HR – Somalia Federal Director General Government Gavin Roy Office of UN Resident Coordinator Resident Coordination Advisor Abdinoor Osman Wehliye OSPAD Executive Director Dr Ahmed Aways PAC CEmONC Prog. Coordinator Dr. Mohamed Abdirahman PAC Health and Nutrition Coord. Halima Mohamed PESS Team Leader [Data Entry and Analysis] Ahmed Abdurizack PESS ToT / Data Entry/ Data Analysis Mohamed Ali Ibar PESS Mappinf Supervisor/ ToT Mukhtar Mohamed Hassan SAMA Programme Manager Hassan Noor SLNMA Ag. Programme Manager Prof. Abdi Ali Jama SOLNAC Executive Director Mama Amina Haji Elmi SSW&C Director Habiba Abass SSW&C GBV Training Specialist

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Name of Respondent Organisation/ Institution Title Dr. Abdullahi Mohamed Nur SWISS Kalmo Programme Manager Saynab Jama Ismail SWISS Kalmo MWH Nurse midwife Nuurto Moallin Isse SWISS Kalmo MWH Nurse midwife Hamilimo Hassan Abdi SWISS Kalmo MWH Ward in charge Dr. Nafiso Abdirahman SWISS Kalmo MWH Obstetrician & Gynaecologist Sheikh Dr. Ikran Abdullahi Hashi SWISS Kalmo MWH Obstetrician & Gynaecologist Dr. Abdullahi Mohamed SWISS Kalmo MWH Program Manager Victoria Nwogu UNDP Gender Specialist Judith Otieno UNDP GBV Officer Mohamed Mursal Abdi UNFPA GBV Coordinator – SCZ Dr. Salad Hussein Duale UNFPA RH Specialist – SCZ Bakhtior Kadirov UNFPA Head of Puntland Sub-Office Mr Anas UNFPA Head of Somaliland Sub-Office Jihan Salad UNFPA Reproductive and Maternal Health Programme Specialist - Puntland Dr. Achu Lodfred UNFPA RHR Technical Specialist Fatuma Muhumed UNFPA Adolescent, Youth and HIV Analyst Eri Taniguchi UNFPA GBV Specialist Mariam Alwi UNFPA P&D Focal Point Felix Mulama UNFPA Technical Team Richard Chirchir UNFPA Statistician Dr. Samia Hassan UNFPA PM – Humanitarian Response Grace Kyeyune UNFPA Deputy Country Rep. Mr. Ibnou Diallo UNFPA Chief Technical Advisor, Reproductive Health Commodity Security (RHCS) Ahmed Abdi Jama UNFPA Youth and Gender Specialist Bahsan Ahmed Siciid UNFPA Gender and Youth Specialist

Sulaika Abdi Ibrahim University of Hargeisa Student (Y-PEER Beneficiary)

Hibo Abdikarin Aden University of Hargeisa Student (Y-PEER Beneficiary)

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Name of Respondent Organisation/ Institution Title Dr. Hussein Ali Mohamed WARDI Health and Nutrition Officer Mohamed A. Ibrahim Y-PEER Network Executive Director Abdiweli Ali Abdule Y-PEER Network – Puntland Executive Director Hassan Ahmed Aideed Y-PEER Network – Puntland PM – Youth Alternatives Mohamed Abdullah Y-PEER Network – Puntland Finance Assistant Abdiaziz Hersi Y-PEER Network, Somaliland Chairperson Abdirahman Mohamed Y-PEER Network, Somaliland Project Officer

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Annex 5: Evaluation Data Collection Tools

Interview Guide – Reproductive Health Thematic Area (Target: UNFPA Staff, Ministry, Training Institutions, Youth Networks, IPs and Service Points) RH Interview Guide

Target: UNFPA Staff, IPs and Service Providers

Name of Interviewee: …………………………………………………………………………………………… Position: ………………………………………………………………………………………………… Institution/Organisation: ……………………………………………………………………………… Interviewee: …………………………………………………………………………………………… Stakeholder

Introduction: a. Introduce yourself and the purpose of the Interview: the objective of assessing experience and learning of the current program cycle with the view of proposing recommendations for the next CP cycle. b. Assure participants of the confidentiality of information exchange which will serve only for the purpose of analysis.

1. Rationale for the project and activities undertaken (needs assessments, value added, targeting of the most vulnerable, extent of consultation with targeted people, ability and resources to carry out the work, gender sensitivity)

Questions: a. How did you decide to undertake this work, what were the indications that it would be effective and would reach the target population? b. Who was consulted regarding the design? To what extent were they consulted? c. What other actors have been involved, how does this activity contribute to that of others?

2. Relevance of the project/activities to the UN priorities, government policies, local structures, to changes in the political and institutional situation

Questions:

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a. How well does the activity/work support the government’s priorities and work within the national structures that are in place? How well does it work within private structures? b. How well is the work designed to achieve the outcomes/results in the CPAP? (to increase physician assisted deliveries, to increase demand by women for RH services, to reduce disparities in fertility and maternal mortality/morbidity, to improve RH knowledge of youth) c. Has UNFPA adapted the programme and activities to respond to changes in the institutional environment (e.g. dynamism in the government, restructuring of the Ministry of Health)? d. Were there any RH needs or priorities of the implementing partners that the country program did not address adequately or at all? If Yes, What were these needs and Priorities e. To what extent has UNFPA responded to RH emerging issues in the IDP Settlements or calamities? What were the factors that facilitated UNFPA response to such RH emerging issues? What were the factors that hindered the UNFPA response to such RH emerging issues?

3. Effectiveness of the approaches/activities/projects used to improve access to high quality RH and FP services and for the most vulnerable.

Questions: a. What are the indications that the approach is working or making progress toward goals established to be achieved in 2015 - end of CP - (e.g. anecdotes which provide illustrations of positive, negative or unintended effects, or quantitative and qualitative evidence) ; (numbers being reached, products produced/purchased and the extent of impact, evidence of usage of knowledge, increasing networks, etc.) b. Were UNFPA interventions implemented at adequate scale to reach intended outcomes? c. What else should be done to make the programmes more effective? d. How effective was the training on adolescent and youth sexual and RH in addressing the adolescent and youth health? e. What are the barriers/challenges to increasing demand and access to services, and how are they being addressed?

4. Sustainability

Questions a. Are the capacities in place among stakeholders to be able to carry out the activities/project without support from UNFPA? b. Are financial resources available? c. Will the results of the project last after the CP is completed? d. (For UNFPA) is there an exit strategy?

5. Efficiency of use of UNFPA resources (partners, staff, money, global experience)

Questions:

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a. Did your work receive the needed support from UNFPA in terms of advice, staff inputs, money or technical assistance, what were the strengths and weaknesses? b. Did you receive any other donor support in connection with the UNFPA work? Did UNFPA promote greater connections and resources from the government or national actors?

6. Functioning Coordination mechanisms

Questions: a. Do you work with other UN agencies and/or can you say how well the activities are coordinated, overlapping? b. Are there gaps in the population needs which would not have been identified by the UN system, collectively?

7. The value of UNFPA work to national development

Questions: a. How big of a difference is UNFPA making in RH in Somalia, what contributes to its effect, what detracts? b. Can UNFPA input be improved or strengthened?

8. Interviewee Recommendations a. Programmatic b. Strategic

Focus Group Interview for Y-Peer Members and Youth (ASRH)

a. Introduce yourself and the purpose of the Interview: the objective of assessing experience and learning of the current program cycle with the view of proposing recommendations for the next CP cycle. b. Assure participants of the confidentiality of information exchange which will serve only for the purpose of analysis. c. Write the names of all the Participants

1. Rationale for the project and activities undertaken Possible questions: • Please describe the groups you are trying to reach through your participation in the activities and why you think it is important for RH?

2. Relevance of the project/activities to the UN priorities, government policies and local structures Questions: • How well does the activity/work fit in with the youth and Y-Peer activities across Somalia?

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• What effect do you think the work should have, with which groups?

3. Effectiveness of the approaches/activities/projects used to improve access to high quality RH and FP services and for the most vulnerable. Questions: • Can you provide examples of success of the approach/activity (e.g. box game, peer counselling) both long term and short term? • How useful are these activities to communicate the RH messages? • Can the youth network carry on the work without UNFPA? What will help the youth network to carry on the RH work on its own?

4. Efficiency in the use of UNFPA resources (partners, staff, money, global experience) Questions: • Did your work receive the needed support from UNFPA? • Did the youth network receive any other support in connection with the UNFPA work and who provided this support?

5. Functioning of coordination mechanisms Questions: • Do you work with other UN agencies and/or can you say how well the activities are coordinated, overlapping or gaps identified?

6. Value Added Questions: • How big of a difference is UNFPA making in RH in Somalia, what contributes to its effect, what detracts? • Can UNFPA input be improved or strengthened?

7. Interviewee recommendations

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Focus Group Discussions with IDPs (RH) Introduction: a. Introduce yourself and the purpose of the Interview: the objective of assessing experience and learning of the current program cycle with the view of proposing recommendations for the next CP cycle. b. Assure participants of the confidentiality of information exchange which will serve only for the purpose of analysis. c. Write the names of all the Participants

1. Rationale for the project and activities undertaken Questions: • What were, and are your priority needs? • How well have you been consulted about your needs?

2. Relevance of the project/activities to the UN priorities, government policies and local structures Questions: • Did you help plan the services you have received? • What effect do you think the work should have, with which groups?

3. Effectiveness of the approaches/activities/projects used to improve access to high quality RH and FP services and for the most vulnerable. Questions: • Can you provide examples of success of the services or activities? • How do you think the activities can be improved? • What was helpful for you regarding your health (psychosocial support, learning, access to contraceptives, birth spacing)? • Will the activities/services be useful in the future?

4. Efficiency in the use of UNFPA resources (partners, staff, money, global experience) Questions: • Did you receive the service when you needed them? Where there delay? Did you receive what you expected? Were you consulted afterwards about your use of the items and services?

5. Functioning of Coordination Mechanisms Questions: • Do you receive assistance from other agencies or individuals? Do they work together?

6. Value Added Questions:

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• How big of a difference has this work made in the lives of your families? • Can UNFPA input be improved or strengthened? GENDER EQUALITY COMPONENT

Target: UNFPA Programme Specialists and IP Programme Staff.

Name of Interviewee: ………………………………………………………………………………………………… Position: …………………………………………………………………………………………………… Institution/Organisation: ………………………………………………………………………………… Interviewee: ……………………………………………………………………………………………… Stakeholder Introduction: a. Introduce yourself and the purpose of the Interview: the objective of assessing experience and learning of the current program cycle with the view of proposing recommendations for the next CP cycle. b. Assure participants of the confidentiality of information exchange which will serve only for the purpose of analysis.

1. Degree and Quality of involvement in the Programme

Questions: • How long have you been involved in this programme / project? • In which stages have you taken part? (Design, implementation, etc.) • What do you think about the pursued objectives / target groups? • Could you describe the activities undertaken and your role within the implementation process?

2. Relevance of the programme

Questions: • How did you decide to undertake this work, what were the indications that it would be effective and would reach the target population? • How well does the activity/work support the government’s priorities and work within the national structures that are in place? How well does it work within private structures? • What can you say about the gender sensitivity of the programme activities?

3. Coordination and relations with UNFPA, donors, other implementing partners (from public, private sector, NGOs) and beneficiaries

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Questions: • What other actors have been involved, how does this activity contribute to that of others? • How would you describe your relations with UNFPA and the support provided by them? • How would you describe your relations with other implementing partners? • How would you describe your relations with the beneficiaries of the project? • Do you think the channels of dialogue with other partners and beneficiaries are sufficient? In what ways could they be improved? • Do you work with other UN agencies and/or can you say how well the activities are coordinated, overlapping? • Are there gaps in the population needs which would not have been identified by the UN system, collectively?

4. Sustainability, ownership and capacity strengthening within the framework of the particular Programme

Questions: • What are the particular gains your institution has provided from this project? • What do you think about the sustainability of the project? • What are the main factors affecting sustainability? • Are the capacities in place among stakeholders to be able to carry out the activities/project without support from UNFPA?

5. Effectiveness of the approaches/activities/projects

Questions: • What are the indications that the approach is working or making progress toward goals established for 2015? • What are the main strengths and weaknesses of this programme? In what ways could the weaknesses be addressed?

6. Efficiency of use of UNFPA resources (partners, staff, money, global experience)

Questions:

• Did your work receive the needed support from UNFPA in terms of advice, staff inputs, money or technical assistance, what were the strengths and weaknesses? • Did you receive any other donor support in connection with the UNFPA work? Did UNFPA promote greater connections and resources from the government or national actors?

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7. Perceived difficulties / challenges for the smooth implementation of the Programme/project (including the impacts of changing development context, changing national priorities, institutional structures, etc.)

Questions: • Have you experienced any particular difficulties/obstacles in project implementation? • Have they been resolved effectively? What were the main factors leading to their resolution? • Have your activities been affected by recent changes in legal/administrative context?

8. The value of UNFPA work to national development Questions: • How big of a difference is UNFPA making in gender equality in Somalia, what contributes to its effect, what detracts? • Can UNFPA input be improved or strengthened? • What are the strengths and weaknesses of UNFPA • How can you compare UNFPA with other major international funding organisations?

9. Interviewee Recommendations

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Gender Questions for Policy Level Interviews

Name of Interviewee: ………………………………………………………………………………………… Position: ………………………………………………………………………………………………… Institution/Organisation: ……………………………………………………………………………… Interviewee: …………………………………………………………………………………………… Stakeholder

Introduction: a. Introduce yourself and the purpose of the Interview: the objective of assessing experience and learning of the current program cycle with the view of proposing recommendations for the next CP cycle. b. Assure participants of the confidentiality of information exchange which will serve only for the purpose of analysis.

Relevance: Questions: • In your view, how appropriate is the GE programme within Somalia’s efforts to advance gender equality and ending GBV or Violence against Women? • To what extent do you think that the programme is aligned to national priorities and policies on GBV? Where possible, please indicate the policies you have in mind as you respond. • In your view, to what extent is the UNFPA Gender programme dealing with prevention and service provision for survivors necessary and sufficient? • What else could the Gender programme take on board to increase its relevance?

Effectiveness: Questions: • Has UNFPA’s Gender programme contributed towards Somalia’s efforts to advance gender equality and end GBV? To the extent possible, please provide the evidence to demonstrate this point. • To what extent has UNFPA contributed towards profiling or raising GBV as a national issue? • In your view are there any unintended impacts of this programme? If any please share your thoughts on what those are and who has been affected positively and negatively by them.

Efficiency: Questions: • Has UNFPA delivered GBV programming in a cost effective manner?

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• Could the same quality of programming and results have been achieved with less investment of resources? Please qualify your answers were possible.

Sustainability: Questions: • To what extent are UNFPA supported programmes owned by the targeted communities? • Are the UNFPA resource allocations both technical and financial sufficient to support meaningful community initiatives and results?

Value Addition: • In your view could Somalia have made the same advances in promoting Gender Equality and ending GBV without UNFPA intervention? • What is UNFPA’s added value in the GE sector, especially GBV? Coordination: Questions: • What other actors have been involved, how does this activity contribute to that of others? • How would you describe your relations with UNFPA and the support provided by them? • How would you describe your relations with other implementing partners? • How would you describe your relations with the beneficiaries of the project? • Do you think the channels of dialogue with other partners and beneficiaries are sufficient? In what ways could they be improved? • Do you work with other UN agencies and/or can you say how well the activities are coordinated, overlapping? • Are there gaps in the population needs which would not have been identified by the UN system, collectively?

Interviewee recommendation:

What are your recommendations to the CO as the strategic focus on GE and GBV for the next programme cycle?

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GENDER COMPONENT KII: Beneficiary

Name of Interviewee: ……………………………………………………………………………………… Position: ………………………………………………………………………………………………… Name of Interviewee Department: …....……………………………………………………………… Stakeholder Type: ………………………………………………………………………………………

Introduction: a. Introduce yourself and the purpose of the Interview: the objective of assessing experience and learning of the current program cycle with the view of proposing recommendations for the next CP cycle. b. Assure participants of the confidentiality of information exchange which will serve only for the purpose of analysis.

1. Relevance of the programme / project objectives for targeted groups, Questions: • How and how long have you been involved in this programme / project? • How were you reached to take part in this programme /project? • What do you think about the activities undertaken?

2. Relations with UNFPA and implementing partners (from public, private sector, NGOs) Questions: • Can you describe your relations with UNFPA? What is the extent of support, guidance, assistance provided by the agency? • What do you think about the communication channels with UNFPA and other partners (if relevant)

3. Importance of the service provided Questions: • How would you describe the gains provided by this programme? • Can you talk about the concrete impacts of these gains in your life? What kind of impacts? • Do you face any difficulties / obstacles in benefiting from these gains? In what ways can they be improved

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4. Value Added Question: • What do you think about the role of UNFPA in this project? What are its strengths and weaknesses?

5. Interviewee recommendations

POPULATION AND DEVELOPMENT Policy-Makers & Ministry Directors

Name of Interviewee: …………………………………………………………………………………………… Position: ………………………………………………………………………………………………… Name of Interviewee Department: …....……………………………………………………………… Stakeholder Type: ………………………………………………………………………………………

Introduction: a. Introduce yourself and the purpose of the Interview: the objective of assessing experience and learning of the current program cycle with the view of proposing recommendations for the next CP cycle. b. Assure participants of the confidentiality of information exchange which will serve only for the purpose of analysis.

1. Which activities in your institution (department/ministry) were supported by 2nd Country Programme? • PROBE: Statistics Unit: data & report production • PROBE: At Ministry: Population policy, integrating population and development

Relevance (Usefulness and value to stakeholders) 2. Do the objectives for programme interventions supported by the 2nd Country Programme: • Address the needs of your organisation? • The needs of the institutions and users you serve?

3. How has the programme supported the organisation (ministry) to address the needs of your clients (users of population and other data)? • If not, what issues still need to be addressed? • Are the data used in planning? Examples

4. To what extent are the results and benefits from the 2nd Country Programme 2011-2015 useful to users of population data? 5. How are UNFPA interventions integrated/ into related government programmes?

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6. Is UNFPA responsive to government needs in the context of Somalia as a developing country?

Efficiency (Organisational and programmatic efficiency) 7. How appropriately and adequately are the available resources (funding and resources) used to carry out activities for the achievement of the outputs? 8. To what extent were the activities managed in a manner to ensure delivery of high quality outputs and best value for money? 9. Were agreed outputs delivered? 10. Was the programme approach, partner and stakeholder engagement appropriate for results delivery? 11. Which partnerships were more strategic in bringing about results and value-for money? 12. Were institutions adequately equipped to deliver on results-based management/ M& E for the CP?

Effectiveness (Degree of achievements of outputs and outcomes) 13. To what extent did the UNFPA CP contribute to the stated outcomes? 14. Are the outcomes a result of/attributable to CP interventions? 15. Were UNFPA interventions implemented at adequate scale to reach intended outcomes? 16. To what extent did the programme address the needs of the beneficiaries? 17. Were strategic information outputs such as Census Reports and other research reports used to inform policy/planning? 18. Are relevant population reports and demographic data used for planning? 19. What else should be done to make the programmes more effective?

Sustainability (Continuity of benefits after 2nd Country Programme) 20. Are UNFPA interventions integrated into departmental plans? 21. What are plans for sustainability within your organisation? 22. Does your institution have capacity to continue programme interventions without UNFPA or any donor support? If not, what kind of assistance will be required? 25. To what extent have the capacities been strengthened?

Interviewee Recommendations 26. Any recommendations on improving data use?

Thank you for your time and information

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